Shelter Planning Task Force — Portland, ME
Date: 2015-09-23

Attachment #1
p. 1



 Two years ago, the City of Portland’s Task Force to End Homelessness reached
 consensus on the concept of scattered site homeless shelters spread throughout
 different City neighborhoods, all serving slightly different populations and/or
 providing differing models of services. See excerpts below:

 Retooling the Emergency Shelter System:
 This retooling of the emergency shelter system will include the creation of a centralized
 intake process where all clients who are homeless would be assessed. Those appropriate
 for diversion to housing, other specialized shelters or other housing situations would be
 rapidly reassigned to these more appropriate options

 Strategy
 Develop a central intake and assessment process where rapid assignment to other
 temporary housing placements will occur. Individuals who arrive at an intake center
 would be assessed and placed in other temporary housing located in other parts of
 Portland and surrounding communities.

 Action Items

 Phase 1, increase assessment and case management staff. Integrate Preble Street and
 Oxford Street Shelter roles and responsibilities-

 Phase 2-create a single point of entry and a general shelter in the same site.

 Phase 3-review of shelter sites for specialized implementation


 To be clear, this would still be the preferred approach.

 But, given the fiscal and political realities facing the City of Portland and
 nonprofit social service organizations, it is clear there is very little chance of
 several shelters being located, funded, and operated separately in different parts of
 the city.

 And the status quo is unacceptable:

  Overflow(s) needed every night
  Sleeping on mats
  Funding not sufficient, nor sustainable
  Very little space/capacity to increase onsite services (internal services, or
 those provided by outside organizations)
  Meals and day shelter services offsite, forcing clients to walk back and forth
 on busy streets
  Soup kitchen and day shelter also overcrowded with little space/capacity to
 increase onsite services
  Neighborhood concerns
Attachment #1
p. 2




 A consolidated shelter would:

  Create some economies of scale in terms of staffing
 An open shelter design with clear sightlines and a central staff location
 reduces the need for additional staff to monitor separate rooms and floors.
 Clearly defined emergency protocols along with consistent, ongoing
 training of staff allows for a smaller group of competent professionals
 monitoring the space during the evening and overnight hours.

  24, meals, day shelters
 A single 24 hour site offering overnight shelter, meals and daytime shelter
 will serve the homeless community more effectively and create a quieter,
 safer and cleaner local neighborhood. People will not be transitioned from
 one location to another for sleeping, meals, and case management
 services, carrying their belongings with them everywhere they go. The
 need to wait out in the street while waiting for the next program to open
 will be eliminated. Those who prey on people suffering from mental
 illness and addiction will have less access to their victims if they are not
 readily available to them on a public street. Staff from different shifts will
 be able to more effectively communicate with each other regarding safety
 and behavioral concerns, ensuring smoother transitions and more effective
 delivery of appropriate services.

  Opportunities to engage/involve other organizations ON SITE providing
 services such as mental health, substance abuse, psychiatry, employment,
 financial literacy, Primary Health Care etc.
 In a single shelter with dedicated office space for local agencies, providers
 would serve their clients more efficiently and effectively. Rates of no-
 shows for appointments would drop dramatically as those with the highest
 needs would be present in the shelter space most of the time. People
 needing to meet with providers are more likely to attend meetings in a
 place where they feel comfortable, and providers would be able to find
 their clients more easily for follow up meetings, to get important
 information and signatures, and to check in periodically on those who are
 fading from their services.

  Flexibility of beds/space –
 Flexibility will be the key to this shelter. Different segments of the
 homeless population have different needs, and a dynamic shelter can be
 adjusted to meet them. For example, a daytime sleeping area can offer
 support to those who work evening hours, and can provide respite for
 those who require additional rest.
Attachment #1
p. 3



  Conversion of Building
 Our hope is that a single, centralized shelter with extensive on-site service
 provision will be effective in reducing the number of people experiencing
 homelessness. Over time, as the need for emergency shelter decreases,
 space in the building can be converted to more appropriate forms of
 housing. Efficiency apartments or SROs can be built out to meet housing
 needs for those who are ready to take the first steps toward independent
 living.

  Single entry intake and assessment, diversion strategies
 A single point of entry allows for an immediate assessment of a person
 new to the homeless community. From this initial assessment, the person
 can be connected with the most appropriate services right away, and
 possibly diverted from the shelter altogether. This is an opportunity to
 identify the need of each person as they enter the shelter system and start
 him or her off in the right direction to recovery and housing while at the
 same time streamlining service delivery across the community. Removing
 duplicate services and providing the correct services to each client will
 benefit the individual and de-clutter the service industry overall.

  Rapid Rehousing
 Rapid Rehousing is designed for those who are recently homeless, with a
 goal of finding an appropriate housing placement within 30 days. Basic,
 short term financial assistance and regular case management help
 individuals and households get back into housing and have proven to help
 them stay there until they become financially independent. The result in
 communities that have embraced this strategy has been a drop in shelter
 numbers and a lower rate of those returning to homelessness.

  Housing first
 Proven over time in Portland and nationwide as the most effective way to
 end chronic homelessness, Housing First projects provide housing and on-
 site services as a first step toward recovery for individuals previously
 considered “unhouseable.” The results in local communities have been
 profound. Tenants are remaining housed in their apartments, and costs to
 the community directly associated with these tenants have declined
 dramatically across the board. In Portland, emergency shelters,
 emergency room use, police contacts, jail time and ambulance use all saw
 decreases on the order of 70%-99% over the two year period after Logan
 Place opened its doors to 30 chronically homeless people in 2005.

  Health and Safety
 Building security. Addressing opiate use.
 Attachment #4
 300-Bed Capacity Budgets


 Proposed Shelter Budget Worksheet
 300-Bed Capacity

 Estimated Estimated
 Current Estimated 2-Facility Central Intake
 FY16 Budget 5-Facility (Gender) and Triage Facility

Revenue
 General Assistance $ 1,010,947 $ 1,322,968 $ 1,322,968 $ 1,322,968
 MaineState Housing Authority (MSHA) 637,438 822,903 822,903 822,903
 MSHA - HUD ESG Funds 68,319 68,319 68,319
 City- HUD ESG Funds 53,000 54,759 54,759 54,759
 Medicaid/Mainecare 127,000 - - -
 In-kind Food Donations 850,815 850,815 850,815 850,815
 Total Revenue $ 2,679,200 $ 3,119,764 $ 3,119,764 $ 3,119,764


Expenses
 Personnel & Benefit Costs $ 2,942,676 $ 4,353,235 $ 2,533,886 $ 2,144,867
 Security
 Laundry & Client Supplies
 Food Program
 In-Kind Food Costs
 93,475
 212,570
 703,160
 843,141
 T 467,375
 270,000
 709,560
 850,815
 210,950
 252,500
 709,560
 850,815
 105,000
 243,845
 709,560
 850,815
 In-Kind Goods/Services
 Rent/Mortgage
 Utilities
 Maintenance & Repairs
 Other Direct Program Supports
 Indirect costs (10%)
 Total Expenses
 AF 336,000
 141,724
 96,151
 133,591
 112,407
 59,742
 $ 5,674,637
 336,000
 459,100
 169,620
 499,450
 341,000
 845,616
 $ 9,301,771
 336,000
 367,870
 132,848
 199,780
 201,550
 579,576
 $ 6,375,335 $
 336,000
 295,520
 107,848
 148,210
 169,457
 511,112
 5,622,234


Net Deficit
 DR $ (2,995,437) $ (6,182,007) $ (3,255,571) $ (2,502,470)
 Proposed 150 Bed
 Shelter Budget Worksheet

 150 Bed Shelter
 Annualized
 Budget of one
 150 bed shelter
 which include all
 functions
 currently spread
 out at Oxford
 Street; Preble
 Street's Food
 Program; Preble
 Street's Day
 Shelter


Revenue


General Assistance $ 687,425
Maine State Housing Authority 553,523
MSHA - HUD ESG funds 25,000
City - HUD ESG funds 25,000
In-kind Goods/Services 336,000
In-kind Food Donations 843,141
Total Revenue $ 2,470,088


Expenses

Personnel & Benefit Costs 2,349,313
Security 93,475
Laundry & Client Supplies 227,570
Food Program 703,160
In-kind Food Costs 843,141
In-kind Goods/Services 336,000
Rent/Mortgage 159,170
Utilities 108,985
Maintenance & Repairs 119,905
Other Direct Program Supports 202,348
Indirect costs (10%) 514,307
Total Expenses $ 5,657,374


Net deficit $ (3,187,286)

 includes estimated
 cost of lease

 City of Portland &
 Preble Street cost
 estimates

Note: The costs above reflect shelter operations only. They DO NOT INCLUDE:
 - Case management services
 - Employment services
 - Housing counseling or other supportive services
 - Outreach services
 - Navigator


 C:\Users\jas\AppData\Local\Temp\XPgrpwise\Final OSS Analysis 09.17.15150 BED ESTIMATE
Oxford Street -- 150-Bed Shelter
(nights only as it is currently)

Personnel & benefit costs 1,296,670
Staff Travel/training 5,000
Security 93,475
Laundry 139,200
Client Supplies (hygiene, towels, sheets, etc.) 25,000
Rent 141,725
Utilities 44,170
Maintenance & Repairs 62,050
Contractual (fire alarm, pest control, etc.) 21,900
Office equipment 3,540
Office supplies 12,000
 1,844,730
Preble Street Day Room 116,000
Home Team 25,000
 1,985,730

Revenue
General Assistance (75 beds x 365 x $23.69) 648,514
Maine State Housing Authority 553,522
MSHA - HUD ESG 40,900
Medicaid 76,200
 1,319,136

Net Deficit (666,594)
 MEMORANDUM

TO: Shelter Planning Task Force
cc: Jon Jennings, City Manager
FROM: Julie Sullivan, Acting Chief of Staff
DATE: September 21, 2015
RE: Shelter Options and Task Force Update


In an effort to ensure an efficient and effective process, the City Manager asked that the Task Force
take a short break while Dawn Stiles, Health & Human Services Department Director, led a focused
effort with Milestone and Preble Street (as the three shelter providers in the city) to develop specific
shelter options for him and for the Task Force to consider. During August and the first half of
September, the following people met once or twice a week:

Name Organization Title
Dawn Stiles City of Portland HHS Director
David MacLean City of Portland HHS/Social Services Administrator
Deb DeLong City of Portland HHS/Social Services, Senior Accountant
Angela Giordano City of Portland HHS/Social Services, Oxford Street Shelter Program
 Manager
Krista Morris City of Portland HHS/Social Services, Executive Assistant
Bob Fowler Milestone Foundation Executive Director
Tom Natalie Milestone Foundation Shelter Manager
Joe MacNally Milestone Foundation HOME Team Manager
Marianne Sensale- Milestone Foundation Finance Director
Guerin
Mark Swann Preble Street Executive Director
Jon Bradley Preble Street Associate Director
Donna Yellen Preble Street Chief Program Officer
Tina Flaherty Preble Street Chief Operating Officer
Seth Bruning Preble Street Management Team Assistant

Dawn created the following list of topics for the group to work through:
  Services
  Population
  Diversion
  Shelter Requirements
  Site and Space Needs
  Security
  Size
  Funding


1. Services
The group worked from an assumption of a new shelter system which would include centralized
triage and assessment and all day and night services, including meals and sleeping quarters. They
cited recommendations from the Task Force to Prevent and End Homelessness which support this.
(Attachment 1) Clients who present directly to Milestone would be triaged and served there.


This central triage/assessment and service delivery location would provide office space for outside
service providers to see clients on site. The group agreed that services needed by the homeless
population include: community integration (from corrections or other institutions); education and job
training; entitlement program applications; health care, including mental health and oral health;
housing placement; hospice; legal aid; Narcotics Anonymous and Alcoholics Anonymous; and needle
exchange. The group stated that this approach assures that clients are appropriately referred, allows
for appointments to be more easily kept, reduces transportation costs, and thus more time can be
spent on case management rather than on travel time and tracking down clients.


The group also agreed that single-sex shelter(s) and wet shelter(s) are important.


2. Population
The target population is homeless adults, aged 18 and older.


3. Diversion
Shelter diversion helps individuals seeking emergency shelter to find alternative housing options,
including staying with friends or family. Diversion is not denying services to those who need them,
but instead encourages people to utilize existing resources and support networks.


4. Shelter Requirements
The State requires that shelter users complete General Assistance eligibility screening before the
shelter provider can seek bed night reimbursement. Currently, the City has one GA Financial
Eligibility Specialist stationed at the Oxford Street Shelter. Other shelters must send individual
applications to the City, which are processed weekly.


Maine State Housing requires that beds or cots be used instead of mats. Oxford Street has been
grandfathered but a new facility would be required to use beds or cots.
5. Site and Space Needs
The group agreed that a scattered-site shelter system would be better for clients, though it would be
significantly more costly than other options under consideration. A scattered-site approach would
also decrease the impact on a single neighborhood, as is currently the case.


The group concluded that the B3 zone is the only one that specifically allows emergency shelters as a
conditional use, and alleged that other shelter applications have been denied outside of this zone.


Thus, the group considered the following options: male and female scattered-site shelters and a
larger, co-ed day and overnight multipurpose facility, with a central intake location incorporated in
both models. They believe that a 300-bed shelter reflects current usage for a co-ed day and
overnight shelter, though housing all the current Longest-Term Stayers would bring the need for
shelter beds down to 150-170.


The City Manager asked that I add another option: supporting the effort currently underway to
house the approximately 40 remaining Longest-Term Stayers, which has a target of late January to
have housed all 40. This would allow for the 75-bed overflow shelter at Preble Street to close, and
for Oxford Street to return to its original capacity of 154 beds, with room for 170 clients per night.
When the initial target is reached, the community effort would continue, moving on to the next
group of longest-term stayers, reducing lengths of stay (and overnight demand on the shelter)
through efficient housing and support service delivery in the community. The end result would be
in keeping with HUD’s goal of achieving functional zero – where anyone in the shelter would be on
track to be housed within 30 days, and the shelter would operate below its capacity and as a true
emergency shelter.


6. Security
The group noted that the City currently contracts with a security company to conduct searches and
assist with overall safety and security. A Portland Police Department officer is also on site.


7. Funding and Budgets
The group prepared two budgets. The first (Attachment 2) is for a 300-bed facility that would replace
the Oxford Street Shelter, overflow facilities, Preble Street’s Day Shelter and Preble Street’s Food
Program. The budget does not include case management, employment, housing and related
support services, outreach or other navigators.


The second budget (Attachment 3) is for a 150-bed facility that would replace Oxford Street and
Preble Street’s Food Program. It does not provide for overflow or day shelter. The budget does not
include case management, employment, housing and related support services, outreach, or other
navigators. Both budgets estimate staffing at the City’s current staffing levels.


I have added a third budget (Attachment 4) for your consideration reflecting the current Longest-
Term Stayers initiative and projected cost decreases.


Proposed Next Steps
I suggest that the Task Force consider all options and recommend short- and long-term plans to the
City Manager and the City Council’s Public Safety, Health & Human Services Committee for their
consideration. It seems prudent to allow the current LTS initiative time to reach its goal by late
January/early February before making any significant changes. The Task Force should discuss at its
meeting on the 23rd a revised meeting schedule with the goal of presenting recommendations in
early February.