A Place at the Table:

Homeless Veterans and

Local Homeless Assistance

Planning Networks

September 2001

A Place at the Table:

Homeless Veterans and

Local Homeless Assistance

Planning Networks

February 2002

U.S. Department of Housing and Urban Development

Community Planning and Development Office
Acknowledgements

This guidebook was prepared by Abt Associates Inc. under Contract C-OPC21198, Task Order 9, for the U.S. Department of Housing and Urban

Development’s Office of Community Planning and Development. The primary 

authors of this report are Gretchen Locke, Jenny Berrien, and Kristin Winkel. 

Mary Joel Holin served as the Technical Reviewer. 

The authors acknowledge the thoughtful guidance and support provided by HUD 

staff Michael Roanhouse, the Government Technical Monitor, Mary Kay

Bransford, the Government Technical Representative, and William Pittman,

Director of HUD’s Veteran Resource Center. Mark Johnston and John Garrity of 

the same office provided useful technical review. 

The authors wish to thank other Federal agency staff who provided us with 

contacts and information on funding resources available to homeless assistance 

providers serving veterans. Peter Dougherty at the U.S. Department of Veterans 

Affairs and Stanley Seidel at the Department of Labor were particularly helpful 

in identifying projects for us to consult. At the U.S. Department of Health and 

Human Services, we consulted with Fran Randolph (Center for Mental Health 

Services) and Jean Hochron (Healthcare for the Homeless) and their staff. In 

addition, we thank Richard Schneider of the Non-Commissioned Officers

Association and Sharon Hodge of Vietnam Veterans of America for sharing their 

insights with us. 

We especially acknowledge the support provided by our subcontractor, the

Maryland Center for Veterans Education and Training, and Executive Director 

Colonel Charles Williams, USA (Retired), who assisted in all stages of

guidebook development, from its earliest conception to the final review. 

The authors of this report are grateful to the project administrators we consulted 

in 17 communities located around the nation. This guidebook would not have 

been possible without their detailed descriptions of lessons learned on strategies 

for integrating the needs of homeless veterans in local homeless assistance

planning networks. We thank them for generously sharing their time,

experiences, and wisdom with us. 
Table of Contents

INTRODUCTION.........................................................................................................................1

CHAPTER 1 OVERVIEW OF COORDINATED HOMELESS ASSISTANCE 

PROGRAM PLANNING ............................................................................................................3

AN OVERVIEW OF CONTINUUM OF CARE PLANNING............................................................. 6

HOW TO GET INVOLVED............................................................................................................. 9

CHAPTER 2 STRATEGIES FOR ENSURING VETERANS’ INTERESTS ARE 

REPRESENTED IN LOCAL HOMELESS ASSISTANCE PROGRAM 

PLANNING...................................................................................................................................13

STRATEGY 1: MAKE LOCAL NETWORKING A PRIORITY..................................................... 14

STRATEGY 2: DON’T GO IT ALONE........................................................................................ 16

STRATEGY 3: THINK STRATEGICALLY ABOUT HOW THE PROJECT................................... 19

ADDRESSES LOCAL HOUSING AND SUPPORTIVE .................................................................. 19

SERVICE GAPS............................................................................................................................ 19

STRATEGY 4: BE A LEADER IN THE HOMELESS ASSISTANCE............................................ 22

COMMUNITY............................................................................................................................... 22

CHAPTER 3 GETTING TO THE TABLE: HOW FOUR ORGANIZATIONS 

MADE LOCAL PLANNING NETWORKS WORK FOR THEM...............................25

BOSTON, MASSACHUSETTS: A CONTINUUM OF CARE AT WORK..................................... 25

DULUTH, MINNESOTA: GETTING TO THE TABLE AND STAYING THERE.......................... 27

ALAMEDA COUNTY, CALIFORNIA: BUILDING LOCAL PARTNERSHIPS TO BRING 

HOUSING AND SERVICES TO HOMELESS VETERANS............................................................ 29

SAN DIEGO, CALIFORNIA: MAKING THE MOST OF THE CONTINUUM OF 

CARE PROCESS........................................................................................................................... 30

APPENDIX I

LOCAL HUD FIELD OFFICE CONTACTS .....................................................................33

APPENDIX II

ORGANIZATIONS AND PROJECTS CONTACTED ....................................................39

ENDNOTE REFERENCES ......................................................................................................45
U.S. Department of Housing and Urban Development Introduction 1

Introduction

This guidebook is designed to help organizations

serving homeless veterans to participate in

homeless assistance program planning

networks in their communities and access 

the resources that are available through these 

networks. Veterans make up a significant

portion of the country’s homeless population. 

Recent studies estimate that veterans comprise 

approximately 23 percent of all homeless adults 

in the United States, and 33 percent of homeless 

men.

1

 While communities across the country have developed projects that are

specifically designed for veterans, many veterans’ advocates contend that the needs 

of homeless veterans do not receive sufficient recognition as communities establish

priorities for their homeless assistance funds.

Over the past decade, local communities have placed increased emphasis on 

establishing ongoing coordinated planning efforts to identify the needs of

homeless persons, inventory the resources available, and identify additional 

resources to fill gaps in local service networks. In part, these efforts have been 

driven by the US Department of Housing and Urban Development’s (HUD’s) 

requirement that groups interested in obtaining competitive homeless assistance 

grants from HUD must participate in a coordinated homeless assistance program 

planning process known as the Continuum of Care (CoC). More broadly, local 

providers find that coordinated planning results in more efficient use of resources 

and better services for their clients.

Despite encouragement from HUD that the Continuum of Care process be

inclusive, homeless veterans’ organizations have not always been successful in 

gaining access to the planning process in their communities and competing 

effectively for funding. The complexities of HUD’s programs and the local 

planning process can be barriers, as can the capacity of the organization to 

develop effective funding proposals.

This guide describes how local planning for homeless assistance activities works 

and highlights ways that organizations that serve homeless veterans can become 

involved in homeless assistance program planning. The information presented 

comes primarily from discussions with representatives of organizations serving 

homeless veterans and the lead agencies of the Continuums of Care in their 

communities. The homeless veterans’ organizations that were contacted include 

those that only serve veterans as well as agencies that serve veterans along with 

other subgroups of the homeless population. A total of 28 organizations were 
2 Introduction U.S. Department of Housing and Urban Development

consulted, identified primarily by HUD staff and other experts on homelessness 

and veterans’ issues. 

The guide is organized as follows:

n Chapter 1 provides an overview of how coordinated homeless assistance 

planning occurs in many communities. The steps that an organization 

can take to get involved in the planning process are also discussed.

n Chapter 2 highlights successful strategies that organizations serving 

homeless veterans have developed to participate in homeless assistance 

planning networks, raise awareness of the needs of homeless veterans, 

and secure resources for projects serving veterans. 

n Finally, Chapter 3 presents profiles of promising partnerships that

several veterans’ organizations have developed in their communities 

through participation in coordinated homeless assistance planning

initiatives. The profiles emphasize the fact that getting involved in local 

homeless assistance planning network takes time, but offers substantial 

long-term benefits to homeless veterans and the organizations that serve 

them.
U.S. Department of Housing and Urban Development Overview 3

A Consolidated Plan provides 

the framework for states and 

localities to identify housing, 

homeless, community and 

economic development needs 

and resources, and to develop a 

strategic plan to meet those 

needs.

Chapter1

Overviewof Coordinated Homeless Assistance

Program Planning

Planning for the needs of homeless persons 

and obtaining resources to address those 

needs is driven by two overlapping 

planning efforts that HUD requires

communities to undertake in order to

receive federal housing and community 

development funds. These planning

processes are known as the Consolidated 

Plan and the Continuum of Care. 

Through the Consolidated Plan, eligible local and state

jurisdictions develop housing and community development priorities, including 

priorities for addressing homelessness. The Consolidated Plan, which must be 

approved by HUD, includes a three to five year strategy 

for implementing the following formula-funded grant 

programs: the Community Development Block Grant 

Program (CDBG), the HOME Program, Housing for 

People With AIDS (HOPWA), and the Emergency

Shelter Grants Program (ESG). 

Of these four programs, only the Emergency Shelter 

Grants Program (ESG) exclusively funds projects for 

homeless persons. ESG program funds are distributed to eligible local and state 

jurisdictions according to a formula that takes into account the population of the 

jurisdiction and the level of community need, among other factors. To receive ESG 

funds, jurisdictions must have an approved Consolidated Plan that includes an

assessment of the needs of homeless persons and plans for using ESG funds.

Each year, a set proportion (historically 15 percent) of the total HUD McKinneyVento homeless appropriation is allocated for the ESG program. In fiscal year 2001, 

this was approximately $150 million out of the $1 billion appropriated. The majority 

of HUD’s homeless assistance funds ($850 million in fiscal year 2001) are allocated 

competitively through the Continuum of Care (CoC) planning process. Since 1994, 

HUD has required that communities seeking competitive HUD grants under three 

programs – Supportive Housing, Shelter Plus Care, and Section 8 Moderate 
4 Overview U.S. Department of Housing and Urban Development.

Exhibit 1

HUD’s Major Homeless Assistance Programs

The Supportive Housing Program (SHP)

Supportive Housing Program grants may be used to fund one or more of the following 

activities: acquisition or rehabilitation of a building to be used as supportive housing or 

to provide supportive services; new construction of a supportive housing facility; leasing 

a building to be used for supportive housing or services; the provision of new or 

increased supportive services; costs associated with the day-to-day operation of a new 

supportive housing project or the expanded portion of an existing project; and

administrative costs. 

Shelter Plus Care Program (S+C)

Shelter Plus Care Program grants may be used for the provision of rental assistance 

payments that, when combined with social services, provides supportive housing for 

homeless people with disabilities and their families. Shelter Plus Care provides funds for 

four types of rental assistance: (1) Tenant-Based Rental Assistance (contracted directly 

with the low-income tenant); (2) Project-Based Rental Assistance (contracted with a 

building owner); (3) Sponsor-Based Rental Assistance (contracted with a nonprofit 

organization); and (4) SRO-based Rental Assistance (Single -room occupancy contracted 

with a public housing authority.)

Single Room Occupancy Program (SRO)

The Single Room Occupancy Program provides tenant-based rental assistance for moderate 

rehabilitation of buildings with single-room dwellings, designed for the use of an individual, 

that often do not contain food preparation or sanitary facilities. A public housing authority 

makes Section 8 rental assistance payments to the landlords on behalf of homeless

individuals who rent the rehabilitated units. Rental assistance for SRO units is provided for a 

period of 10 years, and includes some of the rehabilitation as well as the other costs of 

owning and maintaining the property. 

Emergency Shelter Grants Program (ESG)

The Emergency Shelter Grants Program may be used to fund one or more of the following 

activities: the renovation/rehabilitation/conversion of buildings for use as emergency shelters; 

shelter operating expenses such as rent, repairs, security, fuel, equipment, insurance, utilities, 

food and furnishings; essential services such as those concerned with employment, health, 

and education of program participants; activities designed to prevent the incidence of

homelessness; and administrative costs. ESG provides funds to states, territories, and

qualified cities and counties. 
U.S. Department of Housing and Urban Development Overview 5

Rehabilitation for Single Room Occupancy – use the Continuum of Care 

planning process to develop a strategic, coordinated approach to planning for 

projects that assist individuals and families who are homeless. (Exhibit 1 provides 

brief descriptions of each of these programs.) 

The Continuum of Care process was designed to promote the development of 

comprehensive systems to address the range of needs of different homeless

populations in a community. In order to receive 

HUD funds, state and local governments annually 

submit a Continuum of Care Plan that

demonstrates broad community participation and 

identifies resources and gaps in the community’s 

approach to providing outreach, emergency

shelter, and transitional and permanent housing, as 

well as related services for homeless people. The 

plan also establishes local funding priorities.

As illustrated in Exhibit 2, the Consolidated Plan and the Continuum of Care 

planning process together help communities plan for homeless assistance

activities, apply for federal funds, and involve a range of local agencies and

stakeholders in local priority setting. There are several areas in which these two 

processes overlap. First, every project proposed in the Continuum of Care Plan 

must obtain a certificate of consistency with the Consolidated Plan from the 

participating jurisdiction. Second, both the Continuum of Care Plan and the 

Consolidated Plan use the same gaps analysis chart to assess the needs of local 

A Continuum of Care Plan is a 

community plan to organize and 

deliver housing and services to meet 

the specific needs of people who are 

homeless as they move to stable 

housing and maximum self-sufficiency. 

It includes action steps to end 

homelessness and prevent a return to 

homelessness.

The Continuum of Care

g Covers all competitive

homeless assistance

programs, including

Supportive Housing,

Shelter Plus Care, and

Section 8 SRO Program

g Requires gaps analysis of

needs and resources for

each homeless subpopulation

The Continuum of Care

g Covers all competitive

homeless assistance

programs, including

Supportive Housing,

Shelter Plus Care, and

Section 8 SRO Program

g Requires gaps analysis of

needs and resources for

each homeless subpopulation

The Consolidated Plan

g Covers Emergency Shelter

Grants (ESG) formulafunded homeless assistance

program

g Also covers CDBG, HOME

and HOPWA Programs

g Requires homeless needs

assessment and housing

market analysis, including

inventory of facilities for the

homeless.

The Consolidated Plan

g Covers Emergency Shelter

Grants (ESG) formulafunded homeless assistance

program

g Also covers CDBG, HOME

and HOPWA Programs

g Requires homeless needs

assessment and housing

market analysis, including

inventory of facilities for the

homeless.

Exhibit 2

HUD’s Community Planning Framework:

The Consolidated Plan and the Continuum of Care Planning Process

Together,

these plans

help

communities

to plan for

homeless

assistance

activities
6 Overview U.S. Department of Housing and Urban Development.

homeless sub-populations, including veterans, and evaluate the jurisdiction’s 

capacity to meet those needs (the gaps analysis is discussed further below). 

Since the Continuum of Care process focuses exclusively on the needs of

homeless persons, the next section of this guide describes in greater detail how it 

is implemented.

An Overviewof Continuumof Care Planning

The Continuum of Care process is not solely a mechanism by which homeless 

assistance providers apply for funding. The Continuum of Care process also 

serves as a year-round planning and networking tool for providers. The regularly 

scheduled meetings present an opportunity to meet staff from other agencies and 

organizations serving homeless persons. Many homeless assistance providers 

use these sessions to obtain formal and informal referrals for clients and as a 

vehicle for identifying potential partners for new homeless assistance projects. 

Shown in Exhibit 3, the Continuum of Care planning cycle involves five key steps:

n Organizing the annual planning process, which includes establishing a 

“core working group” that has overall responsibility for developing and 

implementing the plan;

n Collecting data on the needs of homeless persons in the community and 

assessing local capacity to address those needs;

n Determining and prioritizing gaps in the jurisdiction’s homeless

assistance system;

n Developing short- and long-term strategies and preparing the plan; and

n Implementing the plan, including identifying projects for funding and 

monitoring progress.

The annual Continuum of Care planning process is intended to include all major 

players in the homeless assistance community and to tie in with existing planning 

efforts, including the Consolidated Plan. At the start of the process, the

community identifies a “core working group” to lead the process, then sets goals 

for the coming year and establishes committees to undertake specific activities in 

developing the Continuum of Care plan. As part of the planning process,

communities must identify organizations to represent the needs of each subpopulation and must describe those organizations’ level of participation in the 

process. Veterans are one of the sub-populations specifically identified in the 

application. Applicants are informed that high scores may be established by a 
U.S. Department of Housing and Urban Development Overview 7

g Inventory existing capacity

dedicated to serving homeless

people

g Inventory mainstream resources

Collect Needs Data and Inventory

System Capacity

2

g Establish criteria for Homeless

Assistance Project selection

g Monitor implementation of the

Continuum of Care Plan

Implement Action Steps for the

Continuum of Care Plan

5

g Create a core working group

g Define roles and responsibilities.

g Establish timetable and goals for

the Continuum of Care planning

process

Organize an Annual Continuum

of Care Planning Process

1

g Conduct gaps analysis

g Establish a process for

determining relative priorities

Determine and Prioritize Gap

in the Continuum of Care

Homeless System

3

g Develop strategies and action

steps

g Adopt a written Continuum of

Care Plan

Develop Short-and Long-Term

Strategies with an Action Plan

4

Exhibit 3

Continuum of Care Planning Cycle
8 Strategies U.S. Department of Housing and Urban Development.

broad-based planning process that includes veterans as one of the key homeless 

groups. 

As a next step, the Continuum of Care members must begin to assess the needs of 

the local homeless population and weigh the community’s existing capacity to 

address those needs. This can be a time-consuming task, often involving surveys 

of providers and of homeless persons. The result of this exercise is known as the 

gaps analysis. Communities must complete a gaps analysis chart for both the 

Continuum of Care Plan and the Consolidated Plan. The chart serves to

document the need of each homeless sub-population, the current inventory to 

address the need, the remaining gaps, and finally the relative priority of each 

homeless sub-population. As shown in Exhibit 4, homeless veterans (both

individuals and persons in families) are specifically identified as a sub-population 

in the chart that must be addressed.

The gaps analysis is used to set priorities for funding – including the criteria that 

will be used to rank and select proposed projects – and deve lop short- and longterm implementation strategies. This forms the basis for the final Continuum of 

Care Plan. The projects that are locally selected and submitted to HUD for 

review must address the priority gaps that were previously identified. The cycle 

is conducted annually to reflect the changing composition and needs of the local 

homeless population.

The inclusion of veterans in the Consolidated Plan and Continuum of Care and gaps 

analysis reflects HUD’s aim to reach out to veterans and veterans’ organizations in 

its funding applications. An assessment of a random sample of 25 Continuum of 

Care plans suggests that most communities do assess the needs of veterans. 

Specifically, the analysis found that:

n All but two of the 25 Continuum of Care plans sampled had veterans’

representation in the development of the plan, and 21 discussed how veterans 

would be specifically reached or planned to be reached in the Continuum of Care 

plan. 

n All but one of the 25 Continuum of Care plans provided estimates of the met 

and unmet needs of veterans. The one Continuum not providing estimates 

indicated that it felt veterans’ needs were contained in the other estimates of 

sub-populations and did give a priority ranking of medium for veterans’

needs.

n Sixty-eight (68) percent of Continuums ranked serving single veterans as a 

high or medium priority. In a number of the Continuums not giving veterans 

a medium or high ranking, there were very few veterans relative to the 

number of persons represented by other sub-populations, especially in rural 
U.S. Department of Housing and Urban Development Strategies 9

or suburban areas. In other cases, lower priority ratings were justified by the 

level of existing special programs addressing veterans’ needs.

Howto GetInvolved

Every local homeless assistance program planning network or Continuum of 

Care is organized differently and offers a variety of opportunities for

participating organizations. Organizations serving homeless veterans need to

learn how the network is organized in their community and assess their

opportunities for getting involved. Following are some key steps to getting 

involved, identified by veterans’ organizations currently participating in their 

local Continuum of Care.

Continuum of Care: Gaps Analysis

Estimated

Need

Current

Inventory

Unmet need/

Gap

Relative

Priority

Individuals

Example Emergency Shelter 115 89 26 M

Emergency Shelter

Beds/Units Transitional Housing

Permanent Supportive Housing

Total

Job Training

Case Management

Supportive Substance Abuse Treatment

Services Mental Health Care

Slots Housing Placement

Life Skills Training

Other

Other

Chronic Substance Abuse

Seriously Mentally Ill

Sub- Dually-Diagnosed

populations Veterans

Persons with HIV/AIDS

Victims of Domestic Violence

Youth

Other

Persons in Families With Children

Emergency Shelter

Beds/Units Transitional Housing

Permanent Supportive Housing

Total

Job Training

Case Management

Supportive Child Care

Services Substance Abuse Treatment

Slots Mental Health Care

Housing Placement

Life Skills Training

Other

Other

Chronic Substance Abuse

Seriously Mentally Ill

Sub- Dually-Diagnosed

populations Veterans

Persons with HIV/AIDS

Victims of Domestic Violence

Other

Chronic Substance Abuse

Seriously Mentally Ill

Sub- Dually-Diagnosed

populations Veterans

Persons with HIV/AIDS

Victims of Domestic Violence

Other

Exhibit 4

The Gaps Analysis Chart
10 Strategies U.S. Department of Housing and Urban Development.

Start with HUD

Information and assistance on local or regional Continuums of Care can be

obtained by contacting the local HUD office. Organizations should find out where 

the Continuum of Care networks are in their area and who are the lead agencies. 

Appendix I provides contact information for local HUD offices. Within each

office, the Director of the Office of Community Planning and Development (CPD), 

which administers the Continuum of Care process, is a good starting point. 

Another good source of information on Continuum of Care resources is the 

HUDVet Directory produced by the HUD Veteran Resource Center. You can 

reach the center by e-mailing hudvet@hud.gov or contacting

www.hud.gov/offices/cpd/about/hudvet/index.cfm.

.

For general information about the Continuum of Care, check HUD’s web site, 

which includes:

n Descriptions of the Continuum of Care process, including instructions for 

applying for funding and current Notices of Funding Availability

(NOFAs) and application requirements. 

http://www.hud.gov/offices/adm/grants/fundsavail.cfm

n The Guide to Continuum of Care Planning and Implementation, which 

provides detailed, step-by-step advice on how to organize and implement 

a Continuum of Care plan.

http://www.hud.gov/offices/cpd/homeless/library/coc/cocguide/index.cfm

n HUD’s Continuums of Care for States brochure, which includes specific 

information on how to form a statewide Continuum and highlights 

approaches to addressing the needs of non-metropolitan areas. 

http://www.hud.gov/offices/cpd/homeless/library/coc/cocstates.pdf

Contact the Agency that Leads the Local Continuum of Care Planning 

Process 

Find out when local network meetings are held and attend them. These meetings 

are usually held monthly or every other month. Beginning with consistent 

participation at these scheduled meetings, organizations can become familiar 

with the local process and the basics of homeless assistance planning. Over time, 

the level of involvement generally increases as organizations learn more about 

the process and the players. 
U.S. Department of Housing and Urban Development Strategies 11

 Become an Active Participant in the Continuum of Care and Other Networks

Join a Continuum of Care committee, work on data collection for the needs

assessment, or become a member of the core working group. These activities allow 

for greater input in the process and offer additional opportunities to make sure that 

the needs of homeless veterans are included in the community’s homeless assistance 

strategy.

There are other local networks worth exploring as well. For example, many 

communities have a Community Homelessness Assessment Local Education

Networking Group (CHALENG). CHALENG networks are affiliated with local 

Department of Veterans Affairs (VA) offices and provide the VA with data on 

homelessness and analyses of gaps in services for homeless veterans in their area. 

All local homeless assistance providers and others who have an interest in

homeless services are invited to the CHALENG meetings. Due to this broad 

participation, the CHALENG meetings can provide an important opportunity for 

providers and concerned community members to network, identify needs, and 

pool resources to serve those needs. In several communities contacted for this 

guide, the lead agency for Continuum of Care planning noted that local

Continuum of Care members depend on CHALENG participants to be the

experts on veterans’ concerns.
12 Strategies U.S. Department of Housing and Urban Development.
U.S. Department of Housing and Urban Development Strategies 13

Chapter 2

Strategies for Ensuring Veterans’ Interests are

Represented in Local Homeless Assistance

Program Planning

Organizations serving homeless veterans agree that

involvement in local provider networks and

planning efforts is critical to ensure that the needs 

of homeless veterans are addressed. They also 

acknowledge that veterans’ organizations

sometimes find it difficult to get involved in 

local networks and to obtain sufficient

support for projects serving veterans in the 

priority-setting process. For example,

veterans’ organizations may encounter a lack of public 

awareness of the size of the homeless veteran population or of the special services 

that homeless veterans may require. Some organizations entering established

planning networks have encountered the misperception that the Department of

Veterans Affairs can fully address the needs of all homeless veterans. Finally, some 

homeless veterans’ organizations have found that their own lack of expertise in 

developing funding proposals or lack of experience with the local planning process 

has limited their ability to compete with other service providers for homeless

assistance funds. 

The organizations interviewed for this guidebook identified several strategies that 

they found successful in addressing and overcoming these common challenges. 

The strategies focus on networking, developing partnerships, and becoming a 

leader in the homeless assistance community. Specifically, the organizations 

highlighted the following strategies:

n Make local networking a priority;

n Don’t go it alone;

n Think strategically about how the project addresses local service gaps; and

n Be a leader in the homeless assistance community.

The remainder of the chapter describes each of these strategies and provides 

examples of how they have been used by organizations serving homeless
14 Strategies U.S. Department of Housing and Urban Development.

veterans. A complete listing of the organizations contacted for this guide can be 

found in Appendix II.

Strategy 1: Make Local Networking a Priority

Since the mid-1990s, HUD has encouraged homeless assistance providers to work 

together to document homelessness in their communities, analyze gaps in homeless 

assistance services and resources, and develop projects to meet identified needs. In 

particular, HUD has made coordinated local planning a requirement to obtain

program funds, whether through the Consolidated Plan or the Continuum of Care 

process. More broadly, however, communities are encouraged to use the networks 

that result from the consolidated planning process, as well as other venues such as the 

VA’s CHALENG groups, as a year-round forum for enhancing communication, 

improving service delivery, and assessing outcomes.

As discussed in Chapter 1, the first step to getting involved in local planning 

networks is to find out where the networks are and start attending meetings. 

Exhibit 5 provides some examples of the kinds of roles that homeless veterans’ 

organizations have played in local planning networks, drawn from these

organizations’ experiences with the Continuum of Care process. The examples 

below illustrate some of the lessons learned from these experiences, as well as 

the benefits to veterans’ organizations of networking with homeless assistance 

providers and the broader community. 

Ensure a Strong Veterans’ Presence at Local Meetings 

Catholic Social Services (CSS) of Lackawanna County, Pennsylvania, has been 

quite successful in getting attention focused on the needs of veterans in their 

region. One strategy that CSS of Lackawanna County has promoted is bringing 

veterans and current clients to Continuum of Care and other networking

meetings. In addition, the local VA hospital and nearby Veterans Health

Administration each send a representative to every meeting. The presence of the 

veterans and their advocates at Continuum of Care and other networking

meetings has been vital to the promotion of the needs of homeless veterans. 

Veterans’ Outreach North (VON), in Duluth, Minnesota, has also tried to make 

networking an organizational priority. It was important to the success of VON to 

participate in the Continuum of Care and other provider networks year-round, and 

not just at funding time. Regular presence at these meetings allowed VON’s staff to 

gain credibility within the provider community and to make an impact on the 

available resources for veterans. Part of the reason for their success was that VON 

staff approached these meetings with a strategy that anticipated initial resistance. 

Being prepared to advocate for their client population at every meeting enhanced 

VON’s credibility with other Continuum of Care members. 
U.S. Department of Housing and Urban Development Strategies 15

Exhibit 5

Participating in Local Homeless Assistance Program Planning

Participating regularly in homeless assistance program planning networks is a 

good way to advocate for veterans’ needs, share information on services and 

resources available through homeless veterans’ organizations, and learn about 

other available resources. In fact, many organizations serving veterans believe

that the Continuum of Care process is as important as a networking tool as it is a 

vehicle for funding requests.

Following are some examples of how veteran-focused organizations have

become involved in local homeless assistance planning networks:

The Executive Director of Operation Dignity has participated in the Alameda 

County, California Continuum of Care since it began. The Executive Director 

sits on the Executive Committee and is a member of the core working group, 

helping to establishing standards of reasonableness of care and conducting 

outreach efforts to homeless veterans. 

Vietnam Veterans of San Diego (VVSD) has been a part of the San Diego City 

and County Continuum of Care since 1995. VVSD staff members sit on the 

application committee, help to edit the Continuum’s application, and generally 

speak on behalf of homeless veterans in the community. 

VETSPACE of Alachua County, Florida is part of the core working group in 

that area, and staff participate in sub-committees of the Continuum of Care to 

prepare the gaps analysis, set priorities, and write the application. The agency’s 

grants manager also sits on the Board of Directors for the Continuum of Care 

and attends the monthly meetings. Attendance at these meetings offers an 

opportunity to report on veterans’ issues and keep veterans a focus for the

group. 

Recognize the Value of Information Exchange 

Boston’s New England Shelter has built a strong and comprehensive spectrum 

of programs that provide a self-contained continuum of services for homeless 

veterans. Additionally, the Shelter has exhibited an impressive capacity for 

fundraising over the years. However, the Shelter’s transition towards a more 

collaborative approach has reinforced the notion that it does not have all the 

answers. Through participating in the local Continuum of Care, shelter staff have 

learned that the organization has much to gain from exchanging programming 
16 Strategies U.S. Department of Housing and Urban Development.

and resource coordination expertise with other local providers. As a result, 

Shelter staff promote the dissemination of their own expertise by hosting visitors, 

conducting outreach to other providers, and sharing information about funding or 

other resource opportunities, while also inviting opportunities to learn from other

organizations. By recognizing the value of exchanging information and

exemplifying this attitude through their own practices, the New England Shelter 

has helped to strengthen the Boston Continuum of Care and facilitate the creation 

of additional collaborative endeavors.

Make Networking Part of the Organization’s Mission, Supported by

Organizational Resources

Since 1996, networking and collaboration with other local providers has been a key 

organizational objective for the New England Shelter. One major component of this 

networking effort was to become an active participant in Boston’s Continuum of 

Care. In fact, solidifying the Shelter’s position and role within the Continuum of 

Care was formalized as an organization goal when a new executive director came on 

board. 

The Executive Director of the Commission on Economic Opportunity in

Luzerne County, Pennsylvania noted the importance of providing staff members 

with adequate time for networking and attending meetings. Although each

individual must take the initiative to attend community networking and monthly 

Continuum of Care meetings, it is just as important for management staff to

support and allow for the time necessary to pursue these networking

opportunities.

Strategy 2: Don’t Go it Alone

One of the most important benefits of getting involved in local homeless assistance 

program planning networks is the opportunity to collaborate with other agencies 

providing similar or complementary services. Partnering with local agencies benefits 

organizations serving homeless veterans in a number of ways. For example, an 

organization serving a general homeless population may partner with a homeless 

veterans’ organization to develop a collaborative project targeted to veterans or to 

institute set-asides for veterans within larger homeless assistance projects. 

Organizations also frequently use partnerships to expand the range of services 

offered to their clients, or to enhance their own organizational capacity. This last 

function may be particularly important for homeless veterans’ organizations that 

have limited prior experience with housing or supportive services, or that do not 

have the in-house technical expertise to produce a competitive grant application. 

Finally, partnering with a local agency – particularly one already involved in the 

local planning network or with a well-established reputation – can help to 
U.S. Department of Housing and Urban Development Strategies 17

broaden support in the local provider community for specific projects, such as 

those targeted to homeless veterans.

The following examples highlight the two types of partnerships that

organizations serving homeless veterans have found particularly beneficial, as 

well as some of the ways in which these partnerships have been used. Further 

examples of how organizations serving homeless veterans have built successful 

partnerships and inter-agency collaborations are presented in Exhibit 6.

Take Advantage of Partnership Opportunities with the VA and Local

Veterans’ Organizations

Despite some initial difficulties, the New England Shelter has made a strong 

effort to build a productive relationship with the VA. This partnership has 

yielded several rewards. For example, the Shelter has recently been working with 

the VA to transform unused buildings on VA medical campuses into single room 

occupancy (SRO) residences for homeless veterans. Two such projects are

currently under construction in the Boston area: a 60-unit SRO project in Bedford 

and a 32-unit SRO project in Brockton. 

In addition to collaborating with the VA on specific projects, organizations 

serving homeless veterans can benefit by serving as a link between the VA and 

the local homeless assistance program planning network. Vietnam Veterans of 

San Diego (VVSD) has effectively taken on this role, offering to connect

veterans in other homeless assistance programs within the Continuum of Care to 

the VA for additional services and funding. The VVSD staff believes that its 

ability to bring additional resources and funding sources to the Continuum helps 

it to gain the respect and support of other homeless assistance providers. 

CSS of Lackawanna County, Pennsylvania, has used its relationship with the 

VA and participation in the local CHALENG group to strengthen its funding 

applications. For example, CSS submits letters of support from the CHALENG 

group and the VA with its applications. 

Forge Partnerships with Other Homeless Assistance Providers and

Community-Based Organizations

Vietnam Veterans of San Diego (VVSD) has collaborated with two other 

housing and service providers in the San Diego area to provide supportive 

housing that includes veterans. In partnership with Interfaith Community

Services, VVSD developed a 44-unit transitional housing project with 33 units 

set aside for veterans. In a second project, VVSD provides case management 

services to 30 veterans living in transitional housing run by St. Vincent de Paul. 

VVSD believes that without involvement in the local homeless assistance
18 Strategies U.S. Department of Housing and Urban Development.

network, these projects would have never been created. In addition, both of these 

projects receive additional funding from the Department of Veterans Affairs, 

which makes a veteran-inclusive project more appealing to housing providers 

who might not otherwise target their programs to veterans.

The RISE Project, located in Alameda County, California, is a six agency

collaborative providing supportive services to disabled homeless people,

including veterans. The project began as an effort to address a gap in services for 

homeless individuals with disabilities in the southern part of the county, a 

Exhibit 6

Further Examples of Successful Partnerships and Collaboration 

n Joseph House in Cincinnati was able to partner with Goodwill Industries to 

provide employment training to its supportive housing residents. Joseph House 

was also able to partner with other housing providers to locate permanent 

housing options for veterans graduating from its transitional housing programs.

n VCAP of Grand Rapids, Michigan has been successful at getting units or 

beds set aside for homeless veterans in the Grand Rapids area. VCAP has 

agreements with various community organizations to provide housing for 

veterans – a total of about 150 slots through a nonprofit housing

development/management firm and the local housing authority. VCAP has 

been working with a nonprofit housing developer to develop a project 

proposal for HUD funding. 

n The Butler County VA in Pennsylvania partnered with the local Housing 

Authority to apply for HUD grants to establish the first transitional housing 

project in that county. Three of the ten units in the transitional housing 

project will be set aside for veterans who will also have access to case 

management services provided by the VA. 

n The American GI Forum National Veterans Outreach Program (NVOP),

a veterans’ organization with a 30-year history of serving the needs of 

homeless veterans in San Antonio, has found that partnering with other 

homeless providers in the San Antonio area to apply for HUD funds has 

formalized and strengthened existing relationships among providers. 

NVOP’s partners include Goodwill Industries, the Salvation Army, the 

United Way, and the VA hospital. In addition, the Forum is working with a 

local Air Force base as it downsizes to identify ways to reserve space for 

housing and services for homeless veterans.
U.S. Department of Housing and Urban Development Strategies 19

suburban area that is historically underserved. The project was initiated by the 

Alameda County Housing and Community Development Office, which provides 

clients with rental assistance through the county’s Shelter Plus Care grants. The 

other partner agencies, which include mental health providers, substance abuse 

treatment centers, and life skills training programs, offer a full range of

coordinated services. Although none of the participating agencies serve veterans 

exclusively, staff report that many of the clients served are veterans. With the 

needs of veterans in mind, RISE developed an agreement with the Department of 

Veterans Affairs to provide services to eligible veteran clients.

In Seattle, the Vietnam Veterans Leadership Program, a veterans’ service

organization, and the Compass Center, a well-established supportive housing 

provider, have partnered to run two veteran-specific transitional housing projects, 

serving approximately 30-35 veterans a year. The two groups recognized that 

there was a need for projects targeted to veterans and collaborated to address this 

gap. Outreach workers from the Healthcare for Homeless Veterans program 

have been an asset in identifying and referring veterans to these projects.

Strategy3: Think Strategically About HowThe Project

Addresses Local Housing and Supportive

Service Gaps

In order to improve their chances of obtaining limited Federal funds,

organizations serving homeless veterans have found that they have had to think 

strategically about how their projects address the housing and supportive service 

gaps identified by the local homeless assistance program planning process. 

Organizations need to develop a firm sense of where the needs of homeless 

veterans fit into the local gaps analysis, as well as what kinds of housing and 

services are likely to receive funding priority. Armed with this information, 

organizations can tailor their projects to meet the broader goals of the homeless 

assistance community, while also furthering their own goals of serving homeless 

veterans. Organizations that never thought strategically about how their projects 

meet commonly identified needs and service gaps have found that they are more 

successful in gaining access to the local planning process and, ultimately, in 

obtaining federal homeless assistance funds.

The following examples highlight the specific strategies that organizations

serving homeless veterans have found useful in marketing specific projects, and 

the needs of homeless veterans in general, to their local homeless assistance 

program planning networks.
20 Strategies U.S. Department of Housing and Urban Development.

Emphasis on Permanent Housing . . . 

Congressional restrictions on the use of 

homeless assistance funds make it

increasingly difficult for new projects

that are not permanent housing projects 

to obtain HUD funds. In fiscal year 

2001, Congress required that a

minimum of 30 percent of HUD’s

homeless grant funds be used for

permanent housing for homeless

persons.

Tailor Project Proposals to Respond to Identified Needs and 

Funding Priorities

Over the past few years, permanent housing has emerged as 

the biggest priority for funding new projects in Boston’s 

Continuum of Care process. Recognizing this funding

priority, the New England Shelter pursued a partnership 

with the VA to develop permanent SRO housing for its 

clients. By targeting its project proposals to the identified 

funding priority – permanent housing – the Shelter

improved its chances of receiving funding while still

meeting its goal of providing housing for homeless veterans 

in Boston. 

To address identified needs within Alameda County, the 

RISE Project operates in the southern part of the county, an area with fewer 

homeless assistance providers. RISE’s focus on providing permanent housing 

and supportive services for disabled homeless individuals is consistent with 

Federal priorities and fills a substantial local service gap, as suggested by the 

project’s higher than expected enrollment numbers. 

Frame the Needs of Homeless Veterans within the Context of Addressing 

the Needs of the Homeless Population as a Whole

Some homeless veterans’ organizations find it difficult to gain acceptance in local 

homeless assistance planning networks because they are overly assertive in 

advocating on behalf of veterans. Their well-intentioned advocacy can convey a 

sense of veterans’ entitlement that may not be well received by other homeless 

assistance providers, in particular given the widely held misperception that all 

veterans have access to a full range of services through the VA. Staff of Vietnam 

Veterans of San Diego have found that working successfully with other

homeless assistance providers requires striking a balance between assertive

advocacy and collaboration. In homeless assistance program planning, this often 

means framing the needs of homeless veterans within the context of addressing 

the needs of the homeless population as a whole.

The American GI Forum National Veterans Outreach Program (NVOP), 

located in San Antonio, Texas, has used this strategy to generate broad support 

for its projects serving homeless veterans. In competing for HUD funds through 

the Continuum of Care process, NVOP tailors its project proposals to directly 

address the service gaps identified in the needs assessment for the total population of 

homeless individuals. NVOP staff report that focusing on service delivery is more 

effective than focusing on the target population. As a result, NVOP’s proposals 

focus primarily on the organization’s ability to provide the needed services and
U.S. Department of Housing and Urban Development Strategies 21

Documenting the Numbers and 

Needs of Homeless Veterans. . . 

• Conduct point-in-time censuses

• Survey local homeless assistance 

providers

• Conduct focus groups with 

current and former clients

• Create a category for “veteran 

status” on client intake forms

secondarily on the project’s target population of homeless veterans. By responding to 

the needs assessment conducted as a part of the comprehensive homeless planning 

process and developing projects that address those needs directly, the agency has 

gained respect within the community as a capable homeless assistance provider.

Know Your Numbers

Although organizations serving homeless veterans may choose to tailor their 

projects to the broad service needs and funding

priorities of the local homeless assistance program

planning network, it is essential that they come to 

the table with a sound knowledge of and credible 

statistics on the number of veterans who are

homeless and their service needs. 

Local homeless assistance providers use a variety of 

methods to develop accurate estimates of the

prevalence of veterans in the local homeless

population. Some of these activities are tied to

preparing funding applications while others are part of 

ongoing efforts to monitor homelessness in the community. 

Telephone or written surveys of service providers, focus groups with homeless 

individuals, and point-in-time censuses of people on the street or in emergency 

shelters are common methods of “knowing your numbers” and identifying 

needs. One representative of a veterans’ multi-service center noted that simply 

making sure that all homeless assistance providers collect information on veteran 

status on their intake forms can provide important ongoing documentation to 

support estimates of the number of homeless veterans in the community. The 

following examples illustrate some of these methods.

n The Housing and Community Development Department of Alameda 

County (CA), the lead agency for homeless assistance program planning 

in Alameda County, surveys clients in HUD-funded projects to identify 

the size of various sub-populations, including the number of homeless 

veterans.

n As part of estimating the population of homeless veterans in the county, 

staff from veterans’ service provider Operation Dignity have worked to 

change the wording of the local Continuum’s definition of veterans to 

include female veterans and veterans who have not seen active duty –

two groups that are often not counted as part of the veteran population.

n Joseph House in Cincinnati, Ohio, has capitalized on the opportunity

presented by their Continuum’s annual consumer focus group meeting by 
22 Strategies U.S. Department of Housing and Urban Development.

regularly bringing several of their homeless veteran clients to participate in 

the discussion. The needs of homeless veterans are addressed in the gaps 

analysis produced from the results of these meetings.

Strategy 4: Be a Leaderin the Homeless Assistance

Community

Beyond making local networking a priority, developing community partnerships, 

and thinking strategically about addressing local service gaps, some

organizations serving homeless veterans have benefited from taking the further 

step to become a local leader on veterans’ issues. Taking on a leadership role in 

the homeless assistance program planning network and the wider community 

requires an additional investment of time and resources, but it is likely to broaden 

support for projects serving homeless veterans and may significantly influence 

the allocation of resources.

Become a Local Activist on Homeless Veterans’ Issues 

In the case of Operation Dignity, an activist Executive Director helps to ensure 

that homeless veterans’ needs are adequately acknowledged and addressed. The 

organization initially became involved in the Continuum of Care because there 

was no other group representing veterans on the committee. Operation Dignity’s 

Executive Director believes that his personal experience as a formerly homeless 

veteran – rather than merely a representative of homeless veterans – gives him 

more influence within the Continuum of Care. As a result, Operation Dignity is 

recognized as the leading veterans’ housing group in Alameda County and is “on 

the inside” of the Continuum of Care planning process.

Operation Dignity’s Executive Director attributes his success in obtaining more 

funding for veterans’ projects to his persistent advocacy for veterans. He

recommends to other veterans’ groups not to be passive, but to “make sure that 

their voice is heard.” For example, he encourages other veterans’ groups to make 

sure that the term “veteran services” is included in every comprehensive

homeless planning document. However, he also cautions veterans’ groups to be 

careful to support their advocacy efforts with statistics demonstrating the actual 

number of homeless veterans in need. 

Although a relatively small organization in terms of staffing, client population, 

and services provided, Veterans Outreach North has developed a strong voice 

within two Continuum of Care in the Duluth area due to the consistent advocacy 

of its Program Manager. To gain access to funding streams and networking 

opportunities, it has proven important to have this strong voice and presence of 

one key individual. The Program Manager has thirty years of experience within 
U.S. Department of Housing and Urban Development Strategies 23

the local provider community and is a veteran himself, which lends him

additional credibility.

Reach out to the Broader Community to Share Knowledge and Expertise 

on Serving the Needs of Homeless Veterans

Organizations serving veterans can play an important role in encouraging

communication about the needs of homeless veterans outside formal network 

meetings. For example, Joseph House in Cincinnati has conducted a workshop 

for its counterpart in the city of Dayton on strategies for serving homeless 

veterans. The Homeless Programs Coordinator from the Battle Creek VA in 

Michigan has been actively involved in planning statewide conferences on

homelessness. Through her involvement, she has made sure that experts on

veterans’ issues are included in panel discussions and that workshops on veterans 

appear on the agenda.

To encourage the inclusion of a variety of service organizations in the local 

competitive funding process, the Commission on Economic Opportunity (CEO)

in Luzerne County, Pennsylvania, offers technical assistance to any organization 

that wants to submit a project as part of the county’s Continuum of Care

application. CEO hires a consultant to facilitate this technical assistance. In 

addition, CEO sponsors an annual public meeting to which “everyone” (service 

organizations, consumers, and other interested parties) is invited for the purpose 

of gathering information about local needs and priorities. 
24 Strategies U.S. Department of Housing and Urban Development.
U.S. Department of Housing and Urban Development Getting to the Table 25

Chapter 3

Getting to the Table: HowFour Organizations

Made Local Planning Networks Work for Them

Organizations whose clients are primarily

veterans have found that getting involved in 

local homeless assistance networks and

securing funding for projects benefiting

veterans can be difficult, especially the first 

time around. All of the strategies discussed 

in this guidebook – understanding the local 

planning process; participating in local

planning networks; developing partnerships 

with other agencies; becoming a leader in 

the community; and establishing a good

reputation – take time and resources. Several of 

the veterans’ organizations interviewed

acknowledged that their early efforts to obtain HUD

funding for projects serving veterans were unsuccessful. 

However, consistent advocacy efforts, combined with demonstrated

understanding of homeless veterans and a proven track record in serving

veterans, have led to the successful funding of projects targeted to veterans. 

This chapter presents profiles of four organizations serving homeless veterans 

that have participated in local homeless assistance program planning networks. 

Each of the profiles highlights one or more of the key challenges of participating 

in local planning networks; together, they illustrate the rich rewards that come 

from finding “a place at the table.” 

Boston, Massachusetts: A Continuumof Care at

Work

In 1999, the number of homeless individuals in Boston reached a record 5,820 

individuals. Approximately 49 percent of these homeless individuals were

veterans.2 The economic boom of the late 1990s, coupled with population growth 

and the elimination of rent control in Boston, has led to an exceedingly tight and 

expensive rental market. Simultaneously, federal homeless assistance funding 

has not kept pace with local need in Boston. 3 These trends have contributed to a 

rise in homelessness in recent years.
26 Getting to the Table U.S. Department of Housing and Urban Development.

The Supportive Housing Unit (SHU) of the City of Boston’s Department of 

Neighborhood Development is the coordinator for Boston’s Continuum of Care 

and distributes HUD homeless assistance funds, between $12 and $15 million 

annually. The SHU works closely with the Strategic Homeless Planning Group, an 

entity created to inventory services for homeless individuals and identify service 

gaps. In addition, Boston’s mayor has created a Continuum of Care advisory 

group known as the Homeless Planning Committee that is comprised of local 

homeless assistance providers and consumers. The Executive Director of the 

Veterans Benefits Clearinghouse in Roxbury, MA directs this committee,

providing a strong voice for the veterans’ community in the Continuum of Care 

process. 

As in other communities, the distribution of homeless assistance funds in Boston 

depends on the prioritization of needs and the resources available for each given 

year. In order to determine annual funding priorities, the SHU undertakes a 

“community process” through which homeless assistance providers, consumers 

(currently or previously homeless individuals), and other stakeholders meet to

discuss how to set priorities to address current needs. 

According to SHU staff, in the early years of Boston’s Continuum of Care,

identifying funding priorities hinged on determining the largest population with the 

most significant needs not being met by other resources. A number of successful

programs were funded and continue to receive renewal grant funds. Today, the 

SHU struggles to provide resources for new projects, because an increasing

percentage of funds is targeted to renewals. Due to the area’s tight rental market, 

the limited funds are typically targeted to permanent housing projects.

With assistance from the New England Shelter for Homeless Veterans, the 

Boston Continuum has worked to address the needs of homeless veterans since 

1996. The Vietnam Veterans Workshop, a non-profit social service organization, 

founded the New England Shelter for Homeless Veterans in 1990. Initially 

operating a 100-bed emergency shelter for homeless veterans, the New England 

Shelter has since expanded its residential services to include a 125-bed 

Transitional Housing Program, a 59-unit Single Room Occupancy program, and 

a 10-bed Shelter for Homeless Women Veterans. The New England Shelter also 

provides a wide range of support services, including an employment training 

program, an on-site medical center, as well as general case management and

counseling services. 

The New England Shelter began its involvement with the Boston Continuum of 

Care in 1996 as part of an effort to expand the Shelter’s ties to other organizations. 

This effort to build bridges to other agencies and, specifically, to become involved 

in the Continuum of Care was initiated by a new executive director. The Shelter 

transitioned from having a somewhat isolationist, “moat mentality” to an attitude 

favoring cooperation and information exchange with other agencies. 
U.S. Department of Housing and Urban Development Getting to the Table 27

The Executive Director reported having a relatively easy time becoming involved 

in the Boston Continuum of Care and other local networking activities. By 

seeking out opportunities to network and emphasizing internally the theme that 

one organization “does not have all the answers,” the Shelter was able to

collaborate with a variety of service providers. The Executive Director noted 

that Boston has traditionally had a strong affiliation with the military service 

community, which facilitated the Shelter’s involvement in the Continuum of 

Care and broader collaborations. 

The Shelter has received substantial funding through its participation in the

Continuum of Care process including Section 8 SRO, Supportive Housing, and 

Shelter Plus Care grants. Major non-financial benefits from participating in the 

Continuum of Care have been the ability to share knowledge about the needs of 

homeless veterans as well as learn about funding options, partnership

opportunities, and other programs. 

Shelter staff currently take an active role in working with the SHU to identify 

service gaps, and the Shelter works to be “part of the solution” by filling some of 

those gaps. Currently, a major Continuum of Care concern is increasing the 

supply of permanent housing. The New England Shelter is collaborating with the 

VA to create additional options for permanent housing for homeless veterans and 

working to fill a gap in homeless services in the Boston area.

Duluth, Minnesota: Getting to the Table and

Staying There

Duluth is located in northeastern Minnesota and had an estimated population of 

85,192 in the year 2000.4 It is the largest city in St. Louis County, which has a 

total population of about 200,000 and an estimated homeless population of 350 to 

500 persons.5 The remaining six counties making up the Northeast region of 

Minnesota are very rural. Recent counts suggest that at any one time there are 

about 100 homeless individuals in overnight shelters and about 120 individuals in 

transitional housing living in the six-county area.6 Reliable numbers are not 

currently available on the number of homeless individuals who are veterans.

Two Continuum of Care groups operate in the region. The St. Louis County 

Planning Department is the lead agency for the St. Louis County Continuum of 

Care, and the Arrowhead Regional Development Commission is a regional 

planning organization that acts as the Continuum of Care lead agency for an 

adjacent six-county Northeast region. These agencies direct the process by which 

the Continuums identify service needs and priorities for funding for the homeless 

population in their respective areas. 
28 Getting to the Table U.S. Department of Housing and Urban Development.

Based in Duluth, Veterans Outreach North (VON) is a multi-service program for 

homeless veterans. Started in 1998, the program serves urban, suburban, and 

rural clients through its outreach services and tends to operate as a

“clearinghouse,” matching veterans with appropriate services and residential 

programs. In addition, VON operates a ten-unit scattered-site residential project 

and offers the following direct services: an AA group for veterans, life skills 

training, case management, and food assistance. The program has received

funding from a variety of sources including a HUD Supportive Housing Program 

grant through the St. Louis County Continuum of Care. This grant, coupled with an 

Emergency Shelter Grant, funds VON’s scattered-site residential program. 

VON staff report that local homeless assistance providers did not initially welcome 

VON’s involvement in the local Continuum of Care networks. Around 1995, several 

years prior to VON’s creation, the current Program Manager began working to bring 

attention to veterans’ needs through participation in a precursor organization to the 

Continuum of Care called the Low-Income Housing Consortium. He recalled that he 

worked hard to counter reluctance on the part of other service providers to allow 

participation from veterans’ representatives, because they did not want the veteran 

population to (in the Program Manager’s words) “cut into their funding pie.” They 

expected the Department of Veterans Affairs to take care of the veterans in the 

community.

As VON staff persisted in their efforts to increase attention to veterans’ needs in the 

area, the Program Manager recalled receiving some invaluable advice from an

employee of the nearby VA to “get at the table, and not leave the table” until his 

message was heard. Today, VON is a valued member of the region’s homeless 

assistance network. The Continuum of Care coordinator for St. Louis County noted 

that VON’s Program Manager is a credible and effective representative of veterans’ 

concerns. He attends monthly meetings for each of these two Continuums of Care 

and currently chairs the finance subcommittee for the St. Louis County Continuum 

of Care. Veterans Outreach North and its staff also actively pursue cooperative 

partnerships with member organizations of the Continuum of Care. VON staff 

members are currently collaborating with the Salvation Army to create a permanent 

housing project. 

VON’s Program Manager emphasizes the importance of attending every

Continuum of Care meeting as well as other meetings that offer networking and 

funding potential. Consistent networking with resource providers has meant that 

funding decisions can no longer ignore veterans’ needs in the allocation of 

resources. 
U.S. Department of Housing and Urban Development Getting to the Table 29

Alameda County, California: Building Local

Partnerships to Bring Housing and Services to

Homeless Veterans

Alameda County is located on the eastern side of San Francisco Bay,

encompassing the cities of Oakland and Berkeley and their surrounding suburbs. 

Of the county’s total population of 1.4 million, an estimated 9,000 to 12,000 

people are homeless on any given night. An estimated 31 percent of homeless 

persons are veterans.

The Housing and Community Development Department (HCD) of Alameda

County serves as the lead agency for the countywide Homeless Continuum of Care 

Council. Members of the Continuum of Care Council meet every two months 

and include 18 jurisdictional representatives (15 of whom are elected officials), 

two consumers, and representatives of advocacy organizations, faith-based 

groups, and housing developers.

Operation Dignity is a leading homeless veterans’ advocacy group and the primary 

provider of supportive housing for homeless veterans in Alameda County. 

Operation Dignity’s first project targeted to veterans began in 1994, and today 

the agency manages 120 units of transitional housing for single homeless adults 

and 95 units for families. While the agency provides services to all homeless 

persons, priority is given to veterans. Veterans with all types of disabilities are 

served, as are those discharged from prisons, treatment facilities, and hospitals 

for whom no subsequent residence has been identified. 

The Executive Director of Operation Dignity is a member of the Executive 

Committee of the countywide Homeless Continuum of Care Council. The 

Executive Director’s personal connection with – and strong commitment to –

homeless veterans has given him credibility with other homeless assistance

providers and has helped the organization build partnerships to expand housing 

and services for this population. For example, his involvement in the Continuum 

of Care planning process was an important factor in the decision to provide 

housing for veterans when the Alameda Point Naval Station closed. The

Continuum of Care formed a partnership of homeless assistance providers to 

develop 200 units of supportive housing. Operation Dignity staff were active 

participants in this process, successfully advocating that 20 percent of the

redeveloped units be reserved for homeless veterans.

The RISE project is another excellent example of a partnership that has led to 

increased services for veterans. While Operation Dignity’s service area covers 

northern Alameda County, there was a gap in services and permanent housing for 
30 Getting to the Table U.S. Department of Housing and Urban Development.

homeless people in the southern part of the county. In particular, homeless adults 

with disabilities, including a substantial number of homeless veterans, were

underserved in this area. Established in 1998, the RISE project is a product of 

the Continuum of Care’s recognition of this service gap. There are six partner 

agencies in the RISE collaborative. Although the project is not explicitly

targeted to veterans, the collaborative includes the Department of Veterans

Affairs to ensure that veterans’ services are available to eligible clients. As one 

of the member agencies, HCD provides rental assistance through the Shelter Plus 

Care program, while the other agencies offer a range of integrated services to 

enable homeless people with disabilities to access and maintain permanent

housing. These services include emergency shelter, mental health counseling, 

life skills training, and employment services. An outreach worker visits several 

drop-in centers for veterans as well as encampments of homeless people. These 

outreach approaches are believed to be quite successful at connecting veterans to 

housing and services.

San Diego, California: Making the Most of the

Continuumof Care Process

According to local estimates, there are currently about 15,000 homeless people in 

San Diego. Of that number, some 2,000 are veterans, about 40 percent of the 

county’s urban single homeless men. Over 80 percent reportedly have drug and 

alcohol problems. Many also suffer from post-traumatic stress disorder.7

The Regional Task Force on the Homeless is the San Diego area’s coordinating 

body for homeless assistance planning and programs. The Task Force oversees all 

aspects of the Continuum of Care process, from collecting annual data on

homelessness to coordinating the development of the Continuum of Care

application.

Since the first organized Continuum meeting was held in 1995, one local

veterans’ organization has participated in the process. This group, the Vietnam 

Veterans of San Diego (VVSD) is a non-profit organization serving homeless 

veterans and their families. The organization’s mission is to “extend assistance to 

all unemployed and homeless veterans of all wars and eras and their families by 

providing housing, food, clothing, substance abuse recovery and mental health 

counseling, job training, and job placement services.” 

To fulfill its mission, VVSD provides both residential and non-residential services 

through a number of HUD-funded projects in San Diego County. The agency

operates four transitional housing projects in the city and county. In addition, VVSD 

also provides case management services to veterans living in a transitional housing 
U.S. Department of Housing and Urban Development Getting to the Table 31

project operated by St. Vincent de Paul. All of these programs also receive matching 

funds from the Department of Veterans Affairs. 

VVSD attributes much of its success in obtaining HUD funding to its active 

participation in the Continuum of Care planning process. VVSD began

participating in the Continuum of Care in 1995. Initially, staff reported that

becoming a part of the Continuum was difficult because the agency had no

experience as a housing provider and no reputation within the supportive housing 

community. It took almost two years of constant effort to become an active player. 

Today, a VVSD representative sits on the Continuum of Care committee that 

collects needs data and has served as chair of that committee. In addition, staff 

attend the Continuums of Care year-round meetings and help edit the Continuum 

of Care application. 

VVSD staff believe that their involvement in the Continuum of Care has had

important benefits. By being an advocate for homeless veterans’ needs and

developing successful projects, VVSD has gained the respect of other housing 

and service providers. As a result, VVSD has been able to partner with these 

providers to develop projects targeted to veterans or to obtain set-asides for 

veterans in other homeless assistance projects.

Involvement in the Continuum of Care process has also contributed to the growth 

of VVSD as an organization. The agency’s size has tripled since it began

participating in the Continuum of Care, in part because of the additional projects 

for which the agency has received HUD funding. VVSD is recognized as the 

leading advocate and service provider for homeless veterans within the

comprehensive homeless planning process in San Diego.
32 Getting to the Table U.S. Department of Housing and Urban Development.
U.S. Department of Housing and Urban Development Appendix I 33

Appendix I

Local HUD Field Office Contacts

This appendix provides a listing of local contacts for HUD’s Office of

Community Planning and Development (CPD), which administers HUD’s

McKinney-Vento homeless assistance funds. The contacts are listed by region, 

then by HUD local office.

New England

Connecticut State Office

One Corporate Center, Hartford, CT 06103-3220

CPD Director: Mary Ellen Morgan, 860-240-4800

New Hampshire State Office

275 Chestnut Street, Manchester, NH 03101-2487

CPD Director: Richard Hatin (Acting), 603-666-7640

Massachusetts State Office

10 Causeway Street, Room 375, Boston, MA 02222-1092

CPD Director: James Barnes, 617-994-8355

New York/New Jersey

Buffalo Area Office

465 Main Street, 5th Floor, Buffalo, NY 14203-1780

CPD Director: Michael F. Merrill, 716-551-5755

New York State Office

26 Federal Plaza, Suite 3541, New York, NY 10278-0068 

CPD Director: Kathy Mullins (Deputy Director), 212-264-0771

New Jersey State Office

One Newark Center, 13th Floor, Newark, NJ 07102-5260

CPD Director: Kathleen Naymola, 973-622-7900
34 Appendix I U.S. Department of Housing and Urban Development.

Mid-Atlantic

Maryland State Office

10 South Howard Street, 5th Floor, Baltimore, MD 21201-2505 

CPD Director: Joseph O’Connor, 410-962-2520

Pennsylvania State Office

Wanamaker Bldg., 100 Penn Square East, Philadelphia, PA 19107-3380 

CPD Director: Joyce Gaskins, 215-656-0624

Pittsburgh State Office

339 Sixth Avenue, 6th Floor, Pittsburgh, PA 15222-2515 

CPD Director: Lynn Daniels, 412-644-2999 

Virginia State Office

3600 West Broad Street, Richmond, VA 23230-4920

CPD Director: Carlos Renteria, 804-278-4503

District of Columbia Office

820 First Street, N.E., Suite 300, Washington, D.C. 20002-4205

CPD Director: Ronald Herbert, 202-275-0994

Southeast/Caribbean

Alabama State Office

600 Beacon Parkway West, Suite 300, Birmingham, AL 35203-5301

CPD Director: Harold Cole, 205-731-2630

Caribbean State Office

159 Carlos E. Chardon Avenue, San Juan, PR 00918-0903

CPD Director: Carmen R. Cabrera, 787-766-5576

Florida State Office

909 Southeast 1st Avenue, Miami, FLA 33131

CPD Director: Jack Johnson, 305-536-4431

Georgia State Office

40 Marietta Street, Five Points Plaza, Atlanta, GA 30303-2806

CPD Director: John Perry, 404-331-5001

Jacksonville Area Office

301 West Bay Street, Suite 2200, Jacksonville, FLA 32202-5121

CPD Director: James N. Nichol, 904-232-1777
U.S. Department of Housing and Urban Development Appendix I 35

Kentucky State Office

601 West Broadway, P.O. Box 1044, Louisville, KY 40201-1044

CPD Director: Ben Cook, 502-582-6163

Mississippi State Office

100 West Capitol Street, Room 910, Jackson, MS 39269-1096

CPD Director: Emily Eberhardt, 601-965-4700

North Carolina State Office 

Koger Bldg., 2306 West Meadowview Road, Greensboro, NC 27407-3707

CPD Director: Tom Ferebee, 336-547-4005

South Carolina State Office 

S. Thurmond Federal Bldg., 1835 Assembly Street, Columbia, SC 29201-2480

CPD Director: Louis E. Bradley, 803-765-5564

Tennessee State Office

John J. Duncan Federal Bldg., 710 Locust Street, Knoxville, TN 37902-2526 

CPD Director: Virginia E. Peck, 865-545-4391

Midwest

Illinois State Office

77 West Jackson Boulevard, Chicago, IL 60604-3507

CPD Director: Victor Thornton, 312-353-1696

Indiana State Office

151 North Delaware Street, Suite 1200, Indianapolis, IN 46204-2526

CPD Director: Robert Poffenberger, 317-226-6303

Michigan State Office

Patrick V. McNamara Bldg., 477 Michigan Ave., Detroit, MI 48226-2592

CPD Director: Emerson Sherrod (Acting), 313-226-7908

Minnesota State Office

220 Second Street South, Minneapolis, MN 55401-2195

CPD Director: Alan Joles, 612-370-3019

Ohio State Office

200 North High Street, Columbus, OH 43215-2499

CPD Director: Lana Vacha, 614-469-5737
36 Appendix I U.S. Department of Housing and Urban Development.

Wisconsin State Office

310 West Wisconsin Avenue, Suite 1380, Milwaukee, WI 53203-2289

CPD Director: Robert Berlan, 414-297-3214

Southwest

Arkansas State Office

425 West Capitol Avenue, Suite 900, Little Rock, AR 72201-3488

CPD Director: Anne Golnik, 501-324-6375

Louisiana State Office

501 Magazine Street, 9th Floor, New Orleans, LA 70130-3099

CPD Director: Greg Hamilton, 504-589-7212

New Mexico State Office

625 Silver Avenue, S, Suite 100, Albuquerque, NM 87110-6472

CPD Director: Frank Padilla, 505-346-7271

Oklahoma State Office

500 West Main Street, Suite 400, Oklahoma City, OK, 73102-2233

CPD Director: David H. Long, 405-553-7569

San Antonio State Office

800 Delorosa Street, San Antonio, TX 78207-4563

CPD Director: John T. Maldonado, 210-475-6820

Texas State Office

801 Cherry Street, P.O. Box 2905, Ft. Worth, TX 76113-2905

CPD Director: Katie Worsham, 817-978-5934

Great Plains

Kansas State Office

400 State Avenue, Room 200, Kansas City, KS 66101-2406

CPD Director: William Rotert, 913-551-5485

Nebraska State Office

10909 Mill Valley Road, Suite 100, Omaha, NE 68154-3955

CPD Director: Gregory A. Bevirt, 402-492-3181

St. Louis Area Office

1222 Spruce Street, 3rd Floor, Suite 1200, St. Louis, MO 63103-2836

CPD Director: Ann Wiedl, 314-539-6524
U.S. Department of Housing and Urban Development Appendix I 37

Rocky Mountain

Colorado State Office

633-17th Street, 14th Floor, Denver, CO 80202-3607

CPD Director: Guadalupe M. Herrera, 303-672-5414

Pacific/Hawaii

California State Office

450 Golden Gate Avenue, San Francisco, CA 94102-6532

CPD Director: Steve Sachs, 415-436-6597

Hawaii State Office

500 Ala Moana Boulevard, Suite 500, Honolulu, HI 96813-4918

CPD Director: Mark Chandler (Acting), 808-522-8180

Los Angeles Area Office

611 West Sixth Street, Suite 800, Los Angeles, CA 90015-3801

CPD Director: William Barth, 213-894-8000

Phoenix Area Office

400 North 5th Street, Suite 1600, Phoenix, AZ 85004-2361

CPD Director: Martin H. Mitchell (Program Manager), 602-379-4754

Northwest/Alaska

Alaska State Office

949 East 36th Avenue, Suite 401, Anchorage, AK 99508-4399

CPD Director: Andrew “Gus” Smith, 907-271-3669

Oregon State Office

400 Southwest Sixth Avenue, Suite 700, Portland, OR 97204-1632

CPD Director: Douglas Carlson, 503-326-7018

Washington State Office

909 1st Avenue, Suite 200, Seattle, WA 98104-1000

CPD Director: Don Phillips, 206-220-5150
38 Appendix I U.S. Department of Housing and Urban Development.
U.S. Department of Housing and Urban Development Appendix II 39

Appendix II

Organizations and Projects Contacted

Alameda County, CA

Alameda County Housing and Community Development Department

Oakland, CA

Contact: Kristen Lee, Alameda County Continuum of Care Coordinator

510-670-5944

Operation Dignity

Oakland, CA 

Contact: Alex McElree, Executive Director

510-287-8465

The RISE Project

Contact: Marleen Cheetham, RISE Coordinator

510-670-6474

Boston, MA

New England Shelter for Homeless Veterans

Boston, Massachusetts

Contact: Tom Lions, Executive Director

617-248-9400

http://www.geocities.com/Pentagon/Quarters/6186/index_nn.htm

Department of Neighborhood Development

Boston, Massachusetts

Supportive Housing Program

Contact: Eliza Greenberg, McKinney funds coordinator

617-635-0253

http://www.ci.boston.ma.us/dnd/
40 Appendix II U.S. Department of Housing and Urban Development.

Butler and Luzerne County, PA

Butler County Veterans Administration

Transitional Housing Project

Butler County, Pennsylvania

Contact: Sandy Beahm, Coordinator of Homeless and Outreach Services

724-285-2514

Commission on Economic Opportunity

VA Transitional Housing Project

Luzerne County, Pennsylvania

Contact: Noel Duffy, Executive Director

570-829-1665

Diana T. Meyers & Associates

Consultant for Butler County and Luzerne County, PA CoC

Contact: Diana T. Meyers

215-576-7970

Cincinnati, OH

Joseph House, Inc.

Cincinnati, OH

Contact: Bill Malone, Executive Director

513-241-2965

Partnership Center

Cincinnati, OH

Contact: Michelle Budzek, Facilitator of the Cincinnati Continuum of Care

513-891-4016

mbudzek@fuse.net

Duluth, MN

Minnesota Assistance Council for Veterans

Veterans Outreach North

Duluth, Minnesota

Contact: Durban Keeney, Program Manager

218-722-8763

http://www.citilink.com
U.S. Department of Housing and Urban Development Appendix II 41

Arrowhead Regional Developme nt Commission

Duluth, Minnesota

Contact: Patty Beech, Northeast Region CoC contact person

218-722-5545

http://www.ardc.org/

St. Louis County Planning Department

St. Louis County, Minnesota

Contact: Lisa Potswald, St. Louis County CoC contact person

218-726-5009

Gainesville, FL

VETSPACE

Gainesville, FL

Contact: Robert Murphy, Grants Manager

352-955-2245

Alachua County Coalition for Homeless and Hungry

Gainesville, FL

Contact: Jim Hencin, Block Grant Administrator for the City of Gainesville

352-334-5031

Grand Rapids, MI

Veterans Comprehensive Assistance Program

Grand Rapids, MI

Contact: Dick MacDonald, Director

616-234-0220

Battle Creek VA

Battle Creek, MI

Contact: Mariam Bearsdley-Gibbs

616-966-5600 ext. 5636

The Salvation Army

Grand Rapids, MI

Contact: Maurie Weitekamp, Housing Continuum of Care Coordinator

616-459-0042

mweitekamp@usc.salvationarmy.org
42 Appendix II U.S. Department of Housing and Urban Development.

Lackawanna County, PA

Catholic Social Services of Lackawanna County

St. James Manor, Veterans SRO, VA Alcohol Drug Treatment Program, Chronic 

Mentally Ill

Scranton, Pennsylvania

Contact: Steve Nocilla , Executive Director

570-207-2287

University of Scranton, Nonprofit Resource Center (NRC)

Consultant for Lackawanna County, PA CoC

Scranton, PA

Contact: Barbara Parkman, Coordinator of NRC

570-941-4050

San Antonio, Texas

American GI Forum National Veterans Outreach Program

San Antonio, Texas

Contact: Mac Rattan, Vice President

210-223-4088

http://www.va.gov/vso/agif.htm

San Diego, California

Vietnam Veterans of San Diego

San Diego, CA

Contact: David Siegler, CFO and Vice President

619-497-6123 ext. 277

Department of Community and Economic Development, Community 

Services Division

San Diego, CA

Contact: Ron Thurlo, Administrator for Homeless Services Program for the City 

of San Diego

619-533-6525

San Diego County Housing and Community Development Department

San Diego, CA

Contact: Peggy Goldstein,

858-694-8740
U.S. Department of Housing and Urban Development Appendix II 43

Seattle, WA

Compass Center

Seattle, WA

Contact: Janice Hougen, Program Manager

206-461-7835

jhougen@compasscenter.org

King County Department of Community and Human Services, Housing and 

Development Department, Community Services Division

Seattle, WA

Contact: Cynthia Ricks-MacOtaan, Homeless Planner

206-296-8644

City of Seattle, Department of Health and Human Services

Seattle, WA

Contact: Eileen Denham, 

206-684-0915

Vancouver, Washington

Sam Galbreath and Associates, Inc.

Portland, OR 

Contact: Sam Galbreath

503-244-3435
44 Appendix II U.S. Department of Housing and Urban Development.
U.S. Department of Housing and Urban Development References 45

Endnote References

 

1

“Homelessness: Programs and the People They Serve, Findings of the 

National Survey of Homeless Assistance Providers and Clients,

Technical Report,” Martha R. Burt, et. al., September 1999, Chapter 11. 

This study, prepared for the Interagency Council on the Homeless, is 

based on the 1996 National Survey of Homeless Assistance Providers 

and Clients.

2 Massachusetts Council of Human Service Providers, Inc.

http://www.providers.org/junecooper.html

3 Boston Strategic Homeless Planning Group and Mayor Thomas M.

Menino. “Summary Report,” November 2000. 

4

http://www.hud.gov/local/min/duluth.html

5

Estimate provided by the local Continuum of Care coordinator for St. 

Louis County.

6

Estimate provided by the local Continuum of Care coordinator for the 

Northeast Regional Continuum of Care. 

7

http://www.co.san-diego.ca.us/rtfh/profile.html