BLUEPRINT TO END - Homeless & Reentry Helpers, Inc. · We received the final draft of the Blueprint during a detailed presentation at a public meeting of the Task Force, attended

ChairmanBill Moreau

Work Team ChairsChar Burkett-SimsAlison ColeKelley GulleyKirk Kavanaugh

Coalition forHomelessnessIntervention andPrevention

Executive DirectorDan Shepley

Firehouse Complex960 E. Washington St.Suite 200BIndianapolis, IN 46202317.630.0853fax 317.630.0856www.chipindy.org

B L U E P R I N T T O E N DH O M E L E S S N E S S

I n d i a n a p o l i s

To the members of the Indianapolis Housing Task Force:

On behalf of the almost 450 people and 150 organizations that participated in theyear-long drafting process, those of us charged by Mayor Bart Peterson and you withpreparing a "Blueprint to End Homelessness" present the final report for yourconsideration. Our efforts received tremendous support from the Mayor and hisadministration, Al Smith and each of you, the community of dedicated professionalsand organizations serving the underprivileged, and resource providers such as majorphilanthropies, Fannie Mae, and others. The hard work of the devoted staff of theCoalition for Homelessness Intervention and Prevention–Dan Shepley, Lori Phillips,Mary Glaspy, Lisa Garrison, and Joe Fahy, the Blueprint's principal researcher anddrafter–cannot be overstated.

But to a person, those of us who worked on the Blueprint effort were motivated by thefaces and voices of our neighbors who have experienced the devastation of homelessnessor whose lives teeter on the brink of homelessness every day. To a person, we areconscious of the fragile line that separates our lives from those of our homeless neighbors.We are committed to erasing that line.

We are also acutely aware that we were given the easiest job. The creation of theBlueprint–merely a document, after all–is the simplest component of the effort to endhomelessness in our community. The far more complex components remain to becreated by others. These people have the tougher jobs. We look forward to workingwith the Indianapolis Housing Task Force and all those who believe, as we do, thathomelessness in Indianapolis can and must be ended.

Very truly yours,

The Blueprint Team

Dear Mayor Bart Peterson:

As you know, after endorsing the concept of a “Blueprint to End Homelessness” for our community,you asked the Indianapolis Housing Task Force to guide its creation. In the spring of 2001, the TaskForce assembled a team of Indianapolis citizens–supported by the staff of the Coalition for HomelessnessIntervention and Prevention–to draft the Blueprint.

In the course of a year, that team developed a process that sought to include the entire Indianapoliscommunity in the drafting effort. The team conducted countless meetings and forums, consulted withnational experts, visited other cities, and created several very public drafts of the Blueprint. TheBlueprint-drafting effort was the subject of great news media interest, especially by The IndianapolisStar.

We received the final draft of the Blueprint during a detailed presentation at a public meeting of theTask Force, attended by more than 300 people. The Task Force solicited yet additional feedback onthe final draft.

Accordingly, the document we are submitting as a final report has been subjected to a great deal ofattention, debate, and scrutiny. We therefore submit the Blueprint to you with great enthusiasm andwith our commitment to work with you and your administration toward its implementation.

Very truly yours,

Housing Task Force Members

Indianapolis Housing Task Force

To the members of the Indianapolis Housing Task Force:

Thank you for submitting this “Blueprint to End Homelessness” for the City of Indianapolisand Marion County. I know I speak for our entire community when I express my heartfeltappreciation for the hard work that went into the drafting of this impressive report.

The Blueprint is a comprehensive, 10-year strategic plan that is a call to action for ourcommunity to work together more effectively to stem the tide of homelessness in our city. It isclear that Task Force members and hundreds of citizen volunteers–homeless neighbors, nationalexperts, elected officials and others–diligently collaborated to develop this plan. They haveexamined the entire continuum of care and have proposed aggressive steps to help our neighborsfind homes that they have lost, and just as important, to prevent families and individuals frombecoming homeless in the first place.

The Blueprint contains several proactive components, including helping 2100 householdsobtain or retain affordable, stable housing within the first five years. It proposes to streamlineand link services and funding, using a strengths-based approach that engages people who receiveassistance by capitalizing on their skills and interests, and strives to prevent homelessness forthose at-risk by providing access to job training and medical and child care.

It is an ambitious plan, yet it is grounded in reality. That is why I support the Blueprintand will work to implement its recommendations. Indeed, a number of experts have labeled theBlueprint a model for other cities to follow. One such expert, Philip F. Mangano, ExecutiveDirector of the United States Interagency Council on Homelessness, has said the Blueprint “setsthe pace for cities across our country to develop and implement similar 10-year initiatives.”

The Blueprint recommends that the Coalition for Homelessness Intervention and Preventionbe charged with implementing the detailed plan, and I accept that recommendation. The Indianapoliscommunity can also expect that my administration will be an active, involved partner in thisimportant effort, using our resources to mobilize public and private support for the implementationof the Blueprint.

Very truly yours,

Bart Peterson

Office of the Mayor

(317) 327-3601(fax) 327-3980(TDD) 327-5186i n d y g o v . o r g

2501 City County Building200 East Washington StreetIndianapolis, Indiana 46204

COUNCIL MEMBERS

Department of Housingand Urban DevelopmentSecretary Mel MartinezChairperson

Department of Healthand Human ServicesSecretary Tommy ThompsonVice Chairperson

Department of AgricultureSecretary Ann Veneman

Department of CommerceSecretary Donald Evans

Department of DefenseSecretary Donald Rumsfeld

Department of EducationSecretary Rod Paige

Department of EnergySecretary Spencer Abraham

Department of InteriorSecretary Gale Norton

Department of JusticeAttorney GeneralJohn Ashcroft

Department of LaborSecretary Elaine Chao

Department of TransportationSecretary Norman Mineta

Department of Veterans AffairsSecretary Anthony Principi

General Services AdministrationAdministratorStephen A. Perry

Corporation for Nationaland Community ServiceChief Executive OfficerLeslie Lenkowsky

Federal EmergencyManagement AgencyDirectorJoe Allbaugh

Office of Management and BudgetDirectorMitchell E. Daniels, Jr.

United States Postal ServicePostmaster GeneralJohn E. Potter

Social Security AdministrationCommissionerJo Anne B. Barnhart

Philip F. ManganoExecutive Director

UNITED STATES INTERAGENCY COUNCIL ON HOMELESSNESS

451 SEVENTH STREET SOUTHWEST, SUITE 2100, WASHINGTON, D.C. 20410 OFFICE: (202) 708-4663 (202) 1216 FAX

October 2002

To the members of the Indianapolis Blueprint to End Homelessness Committee:

Congratulations on the completion of your Blueprint to End Homelessness in Indianapolis. Your plansets the pace for cities across our country to develop and implement similar 10-year initiatives.

As you know, President Bush has demonstrated his commitment to create a strategic response to assistour poorest neighbors – Americans who experience homelessness.

Earlier this year, the President reactivated the United States Interagency Council on Homelessness tocoordinate the activities of 18 federal agencies in their efforts to reduce and end homelessness throughoutour country.

Further, the President’s 2003 budget’s unprecedented initiative to end chronic homelessness in the next10 years follows findings and recommendations of researchers and advocates. People who experiencelong-term homelessness often have several disabilities, including mental illness, addiction, or primaryhealth difficulties. Though a relatively small group of homeless people (numbering between 10 and 20percent of the homeless population), they consume a disproportionately large share of the resources targetedto homeless people.

Creating a strategy to address chronic homelessness focuses on providing housing that long-term homelesspeople can afford and support services that they may require. Such a response has been demonstrated tobe cost-effective and consumer-preferred. Further, appropriately moving long-term homeless peoplebeyond shelter and out of homelessness will free up resources to end homelessness for other populations.

This strategic, research-based initiative of the Bush Administration is supplemented by other policyinitiatives. First, prevention of homelessness–focused on those being discharged from treatment,incarceration, and the foster care system–is vital to ensure that emptied shelter beds are not immediatelyrefilled. Second, better coordination of federal, state, local, and private resources offers the promise ofa more efficient response. Third, access to mainstream programs will offer new resources to homelesspeople themselves and to agencies creating housing and services. And finally, innovative strategies thatoffer visible, quantifiable, and measurable change are a focus of policy deliberation.

To its credit, Indianapolis’ Blueprint to End Homelessness focuses on these key principles. The Blueprintoutlines ambitious, yet achievable, strategies to create many more housing units affordable to individualsand families most vulnerable to becoming homeless. The plan offers a prevention focus and also articulatesstrategies for better coordination of existing services to homeless people, targeting services to those mostin need, and assessing the community’s progress in meeting the Blueprint’s goals.

The Blueprint rightly concludes that homelessness can be abolished–and that allowing its persistence isunworthy of a caring community.

The Indianapolis Blueprint is a model for cities across our country to follow in developing 10-year plansto end homelessness. I am pleased to support the Blueprint and Indianapolis’ effort to pursue the essentialgoal of abolishing homelessness.

Sincerely,

Phillip F. ManganoExecutive DirectorThe United States Interagency Council on HomelessnessWashington, D.C.

Summary page 1

Introduction page 7

How the Blueprint Was Developed page 13

The Blueprint's Final Draft – April 18, 2002 page 14

Strategies Addressing Housing Needs page 15

Strategies for Preventing Homelessness page 19

Strategies for Accessing and Coordinating page 22Housing and Services

Strategies for Enhancing Services page 27

Strategies for Coordinating Services page 33for Special Populations

Blueprint Implementation and page 36Effectiveness

Conclusion: A Call to Action page 39

Timeline page 40

Endnotes page 41

Acknowledgments page 43

Glossary page 46

T A B L E O F C O N T E N T S

B l u e p r i n t t o E n d H o m e l e s s n e s s i n I n d i a n a p o l i s

more housing units affordable to the poorestof the poor – the group most likely to becomehomeless. (According to the federalgovernment, housing is affordable if it costsno more than 30 percent of a household'sincome.)

Most poor people are renters, and a growingshortage of rental housing they can afford isa major reason for increased homelessness,according to researchers. When affordablehousing is lacking, poor people tend to paymore for rent than they can comfortablymanage. Eventually,m a n y o f t h e mencounter financialcrises – and some oft h e m b e c o m ehomeless.

In Indianapolis, thepoorest of the poor arethe only income groupthat faces a shortageof affordable housing.In 1998, the Indiana-polis Housing TaskForce recommendedthat the city addressth i s shor t fa l l bycreating 12,500 rentalunits affordable topeople at the bottomof the income scale.

The strategies in the Blueprint to EndHomelessness are aimed at addressing thispressing need. But the Blueprint's strategiesfocus on more than expanding the supply ofaffordable housing. Many services for homelesspeople need to be strengthened, and theBlueprint contains recommendations to enhanceand better coordinate these services and toensure that they work together more effectively.

But without more affordable housing, servicessuch as mental health treatment and casemanagement lack a component essential for

About 15,000 people – our neighbors – arehomeless in Indianapolis each year. Fortypercent are families; 30 percent are children.Many agencies work earnestly to help localhomeless people, utilizing an estimated $22million annually in public and private funds.

Despite these investments of time, energy, andmillions of dollars, many Indianapolis residentshave repeated spells of homelessness. Andthere are signs that homelessness is increasing.

Local homeless shelters remain full, with manypeople – especially homeless families – turnedaway for lack of room. This increased demandis not unique to Indianapolis. According tothe U.S. Conference of Mayors, requests foremergency food and shelter have risendramatically in many cities during the pastdecade.

These trends suggest that agencies and officialsin Indianapolis must work together moreeffectively to end homelessness. Our citycannot afford to keep investing millions ofdollars a year in the current approach towardaiding homeless people – an approach thatfocuses mostly on helping people once theyhave become homeless.

Instead, Indianapolis must adopt a newapproach, successfully used in othercommunities, that emphasizes making many

S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y

1

"Every study that haslooked has found that

affordable, usuallysubsidized, housing

preventshomelessness more

effectively thananything else. This istrue for all groups ofpoor people, includingthose with persistent

and severe mentalillness and/or

substance abuse."

Marybeth Shinn andJim Baumohl,

"Rethinking thePrevention of

Homelessness," inPractical Lessons:HUD-HHS, 1999

0–30% Median FamilyIncome Housing Needs

About 15,000 people – our neighbors – are homelessin Indianapolis each year.

W h y t h e B l u e p r i n t I s N e e d e d

S U M M A R Y

# Households 0–30%

# Units Affordable 0–30%

moving people out of homelessness and towardself-sufficiency.

Homelessness can be ended in Indianapolis,but only through a much greater effort to helphomeless people find and maintain safe, decenthousing they can afford.

The importance of affordablehousingAccording ly, the B luepr in t ca l l s forpreventing homelessness by helping peoplemost likely to become homeless to maintaintheir housing. This Blueprint also calls for a"housing first" approach that emphasizesplacing homeless people in affordable housingas quickly as possible, rather than having themlive for long periods in emergency shelters orother temporary housing.

"Housing first" represents a change from thewidespread practice of expecting homeless

people to attain sobriety or employment, or toagree to medical or mental health care, beforethey can be considered for permanent housing.It promotes the idea, supported by leadingresearchers, that housing is essential forhomeless people to attain stability rather thanbeing a reward for achieving stability.

To remain housed, however, many homelessand near-homeless people need help findingjobs or accessing other support services suchas mental health treatment, substance abusetreatment, or government-subsidized childcare.

The importance of support servicesAs a result, this Blueprint proposes a "housingplus" approach that calls for matchingaffordable housing for extremely low-incomepeople with appropriate support services. Thisapproach is known as supportive housing.Homeless and near-homeless residents ofsupportive housing units would be encouraged

C H I P • 3 1 7 . 6 3 0 . 0 8 5 3 • w w w. c h i p i n d y. o r g 2

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sS u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y

A N e w A p p r o a c h

Wage Needed to Afford2-Bedroom Apartment

F i g u r e 2

$12

$10

$8

$6

$4

$2

$-

Average wage, TANF recipient

Wage needed for 2-bedroomapar tment

to accept the services they need to be "goodneighbors" and to otherwise achieve stabilityin their housing.

The Blueprint also calls for delivering theseservices, as much as possible, by buildingupon the strengths and interests of homelesspeople. This "strengths-based" approach hasbeen successful in helping homeless peoplewho face multiple challenges – such as mentalillness, HIV-AIDS, or developmental disabilities– to become as independent as possible.

The importance of employmentHelping homeless people find and maintainappropriate employment is a key factor inhelping them reach their potential. It is vitallyimportant that homeless adults work to the bestof their ability, both for their own good andfor the good of society.

But homeless people with mental or physicalillnesses, developmental disabilities, or otherchallenges may have difficulty becoming self

sufficient. Some, in fact, need permanentassistance to avoid homelessness.

Even if they are able to work full time, homelessand near-homeless people often have troublefinding an affordable place to live. In MarionCounty, for example, the average hourly wageof working families who receive welfarepayments is $7.62. But the wage needed toafford a local two-bedroom apartment is$11.31. Quite simply, many people will remainat risk of becoming homeless – or will struggleto move out of homelessness – unless manymore housing units are made affordable toresidents with the lowest incomes.

Cost effectivenessThe most comprehensive case for affordablehousing linked to support services has beenmade in a recently released study from theUniversity of Pennsylvania's Center for MentalHealth Policy and Services Research.Researchers tracked the cost of assisting nearly

The hourly wage needed to afford a local two-bedroomapartment is $11.31.

persons vulnerable to becoming homeless inhis 2002 State of the City Address.

The value of providing homeless people withappropriate housing also has been recognizedby the Bush administration. In its 2003 budgetproposal, the administration said that it wouldwork to move more chronically homelesspeople "from the dangerous streets to safe,permanent housing" and indicated that endingchronic homelessness in the next decade is atop objective.

To beg in t oa d d r e s s t h esevere shortageof af fordableh o u s i n g i nIndianapolis, thisBlueprint callsf o r m a k i n g1,700 additionalr e n t a l u n i t saffordable overthe next f iveyears to peoplewith extremelylow incomes. Italso calls forlinking these unitswith support services. An additional 400families already living in affordable housingalso would receive support services to keepthem from falling into homelessness.

While new resources will be needed to meetthese goals, much of the cost can be fundedby maximizing use of existing public and

private resources, in part by strategicallyredirecting these resources and using them toleverage new funding sources.

Because Indianapolis has thousands of vacantrental units, creating these supportive housingunits will not require a significant amount ofnew construction.

5,000 New York City residents for two yearswhile they were homeless and for two yearsafter they were housed. They concluded thatplacing homeless people in housing createdan average annual savings of $16,282 perhousing unit by reducing the use of publicservices. Seventy-two percent of the savingsresulted from a decline in the use of publichealth services, 23 percent from a decline inshelter use, and 5 percent from reducedincarcerations. These reductions nearly coveredthe cost of developing, operating, and providingservices in supportive housing. The net cost ofthe average supportive housing unit was onlyabout $995 a year.

In other words, based on the most conservativeassumptions – without taking into account thepositive effects on health status and employmentstatus – it costs little more to permanentlyhouse homeless people and provide them withsupport services than it does to leave themhomeless.

Further evidence shows that supportive housingprovides public benefits beyond these savings.An analysis of the Connecticut Supportive

Housing Demonstration Program found thatsupportive housing improved neighborhoodsafety and beautification, increasing orstabilizing property values in most communities.

In Indianapolis, Mayor Bart Peterson recognizedthe importance of providing safe, decent,affordable housing to homeless people and

3

“You could spend a dollar on prevention and save fourdollars on shelter care.”

Supportive

housing improves

neighborhood

safety and

beautification,

and increases or

stabilizes

property values

in most

communities.

–Patrick Markee, Coalition for the Homeless

S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r yB L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i s

Funding for Indianapol isHomeless Ser vices

F i g u r e 3

FederalFoundationsIndividuals

State & LocalCongregationsOther

49%7%

18%

2%

19%5%

T h e C a s e f o r L o c a lI n v e s t m e n t

Blueprint addresses many of the most pressinghousing and service needs of homeless andnear-homeless people in Indianapolis, it doesnot address every need. While the Blueprintshould guide the provision of housing andservices for homeless and near-homelesspeople in our community, it should not be usedto determine every funding decision.

The Blueprint also is not an assessment ofcurrent services that favors some services overothers.

Rather, it is a strategic plan aimed at improvingthe overall system of care for homeless andnear-homeless people, both for their goodand for the good of the Indianapoliscommunity.

Specific strategies in the Blueprint include:

Strengthening efforts to preventpeople from becoming homeless.

Preventing homelessness is crucial, both toreduce the high cost of providing crisis careand to eliminate the disruption that resultswhen people become homeless. To betterprevent homelessness, the Blueprint calls for:

Developing a neighborhood homelessnessprevention initiative that provides rentalsubsidies and other services to peopleespecially vulnerable to becoming homeless.

Providing supportive housing to people atrisk of becoming homeless who are leavingthe criminal justice system, treatment institutionsand the foster care system.

I m p r o v i n g a c c e s s t o , a n dcoordination of, housing andservices.

Homeless and near-homeless people oftenhave trouble locating housing and gainingaccess to appropriate services. This Blueprint

Estimated costs to meet the five-year housinggoals include $48.2 million to acquire, construct,and rehabilitate 1,700 housing units. They alsoinclude $11.5 million in annual rent subsidiesand $13.1 million annually to fund supportservices in 2,100 units once all the units areoccupied.

In the immediate future, this Blueprint calls foradditional resources to strengthen the currentsystem of serving homeless people. But overtime, the investment in affordable housingshould enable the city to make more effectiveuse of existing emergency services (such ashomeless shelters, emergency rooms, and jails)and to reduce the repeated, costly, andinefficient use of these services by homelessand near-homeless people.

While the Blueprint’s recommendations areambitious, Indianapolis is in many ways ideallypositioned to undertake the challenge.

Community leaders and members of about 150organizations and programs worked for monthsto develop this Blueprint, generating momentumfor change. The Blueprint process was energizedby a mayor who possessed the vision to endorsedevelopment of the plan.

And because the Blueprint's recommendationswere based on strategies suggested by expertsor known to have been successful in othercommunities, Indianapolis can have confidencethat they wil l be ef fective in endinghomelessness.

While some of the recommendations requiresignificant investment, failing to act also has acost. By not implementing the housingrecommendations alone, Indianapolis canexpect to continue to spend millions of dollarsfor emergency services with very poor results.

It is important to note that even though theC H I P • 3 1 7 . 6 3 0 . 0 8 5 3 • w w w. c h i p i n d y. o r g 4

Community

leaders and

members of many

organizations

and programs

have worked for

months to

develop the

Blueprint,

generating

momentum for

change.


T h e P l a n ’ s G o a l s

Preventing homelessness is crucial, both to reduce the highcost of providing crisis care and to eliminate the disruptionthat results when people become homeless.

recommends strategies to help people overcomethese challenges and to better coordinatehousing and services. Strategies include:

Coordinating housing and services throughcase management that is well structured,strengths-based, and responsive.

Designating a care management organ-ization to ensure that homeless people areable to receive appropriate support services.

Providing homeless neighbors with enhanc-ed access to up-to-date, helpful informationand referral services.

Conducting outreach to homeless peoplethat emphasizes moving them off the streetand into shelter or housing, especially in coldweather.

Appointing an entity or entities to coordinatestreet outreach and care for chronicallyhomeless adults, many of whom have mentalillnesses or addictions.

Developing a temporary shelter for peoplewho are publicly intoxicated and providingthem with ready access to treatment services.

Providing subsidized childcare andtransportation to help homeless people findand retain employment.

Improving information and access to housingand services for people who do not speakEnglish.

5


Enhancing services in specific areasof need.

Even though many services can be strengthenedby improving access and coordination, othersneed to be enhanced. This Blueprint calls for:

Increasing opportunities for homeless andnear-homeless people to find and maintainemployment.

Assembling a crisis response team andcrisis stabilization programs to help peoplewith mental illness and chronic addictions keeptheir housing.

Helping homeless shelters and day servicecenters to strategically address the immediateneeds of homeless people.

Improving education services to helphomeless children and youths succeedacademically.

Improving legal services for homelesspeople.

Coordinating service systems forspecial populations.

A number of agencies and programs exist toserve special groups of homeless people suchas families, veterans, youths, and survivors of

domestic abuse. The Blueprint calls for bettercoordination of these efforts. Strategies include:

Coordinating service systems to promotefamily stability.

Coordinating services for veterans with theDepartment of Veterans Affairs, VA MedicalCenter, and other agencies that serve homelessveterans.

Assisting survivors of domestic violence bycoordinating shelter and housing services.

Identifying the special needs of young

Even though many services can be strengthened by improving accessand care coordination, others need to be enhanced.

to assess the community's progress towardending homelessness.

Report on a semiannual basis to theIndianapolis Housing Task Force – and, asrequested, to any public or private body – onthe status of the Blueprint's implementation.

The Blueprint's strategies are explained in moredetail in the remainder of this document andin background materials available uponrequest.

people living on their own and connectingthem to housing and appropriate services.

Implementing the plan and monitoringeffectiveness.

The Blueprint to End Homelessness cannotreach its stated, visionary goal without a "leadentity" that will focus its energies on mobilizingour community's resources to ensure that thevision becomes a reality.

At the same time, our community – which willbe called upon to devote considerable resourcesto ending homelessness – has the right to expectthat any lead entity will transcend the outcomeof any election and be held accountable forthe implementation of the Blueprint's ambitious,and aggressive, 10-year goals.

After considerable analysis – including lengthydiscussions with leaders of public and privateorganizations, whose support will be criticalto the realization of the Blueprint's goals – theCoalition for Homelessness Intervention andPrevention (CHIP) has been designated thelead entity.

Among many other duties detailed later in thisdocument, CHIP will work to form partnershipswith existing agencies and programs; promoteawareness of the needs of homeless and near-homeless people; foster increased effectivenessof service delivery; and conduct research andplanning. CHIP will also:

Assemble and provide staff support to animplementation group of city officials, housingexperts, social service providers, and othercommunity leaders to advance the housingand services objectives in the Blueprint.

Provide staff support to a Funders’ Councilof public and private funding agencies thatjointly consider funding requests related to theBlueprint's objectives.

Regularly monitor data and conduct surveysC H I P • 3 1 7 . 6 3 0 . 0 8 5 3 • w w w. c h i p i n d y. o r g 6

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i s

The Coalition for

Homelessness

Intervention and

Prevention

(CHIP) is the

designated lead

entity.

The Blueprint to End Homelessness cannot reach itsstated, visionary goal without a “lead entity.”

S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y S u m m a r y

As Mayor Peterson noted, Indianapolis mustwork together more effectively to endhomelessness, a national shame in the world'srichest country.

The suffering endured by thousands of localmen, women, and children who fall victim tohomelessness every year is, by itself, acompelling reason for action.

But it is also true that Indianapolis cannot affordto keep investing millions of dollars a year inits current approach toward aiding homelesspeople – an approach that focuses primarilyon helping people once they become homeless.

Every year, public funds totaling more than$13 million are spent to provide shelter andother services to our city's homeless neighbors.Most of these funds come from the federalgovernment.

Foundations, congregations, and other privatedonors spend at least $9 million more. This$22 million in annual expenditures does notinclude much of the cost of providing emergency

health care to homeless people, or of housingthem in prisons or jails.1

In spite of these expenditures – and the bestefforts of many agencies to aid homelesspeople – the problem of homelessness hasdeepened in Indianapolis. Some people sufferrepeated spells of homelessness; others remainhomeless for years.2

Fortunately, homelessness is a problem thatcan be solved.

Many cities have formulated successfulstrategies based on making more housingunits affordable to extremely low-income

persons and linking these residents to mentalhealth care, employment assistance, and othersupport services. This concept is known as"supportive housing."3

The Bush administration has recognized thevalue of aiding homeless people by providingthem with appropriate housing.

In its 2003 budget proposal, the administration

I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n

7

As Mayor

Peterson noted,

Indianapolis must

work together

more effectively

to end

homelessness, a

national shame in

the world’s

richest country.

" . . . As we prepare to invest to build a strong and diverse economy, wewould do well to ask: What are we prepared to invest in the lives of thosewho haven't shared in the prosperity of the last decade?

"Too many people in Indianapolis live in substandard housing, are at riskof homelessness, or already are homeless. Too many people at the lowestlevel of the income scale can't find housing that is safe and decent andaffordable. I want Indianapolis to be a city where no child has to franticallystuff his worldly possessions in his backpack, worrying about where he willsleep, or if he will have to change schools again because his parent can'tmake the rent payment.

"Addressing the needs of our homeless citizens is absolutely critical. Justlisten to these numbers: more than 3,500 people in Indianapolis are homelesson any given day. . .Approximately 15,000 people in Indianapolis arehomeless at some point during the course of the year, 30 percent of whomare children. Forty-five thousand Indianapolis residents are at risk ofhomelessness each year. This is unacceptable!

"The Indianapolis Housing Task Force is developing a `Blueprint to EndHomelessness.' I anticipate the completion of this very important 10-yearstrategic plan in late spring. Then I intend to go to work with our wholecommunity toward the Blueprint's ultimate goal – bringing an end to ournational shame: pervasive homelessness in the richest country in the world."

– Mayor Bart Peterson, State of the City Address, February 20, 2002

Mayor Bart Peterson speaking at the 2001 HomelessMemorial Service

Every year, public funds totaling more than $13 million are spentto provide shelter and other services to our city’s homelessneighbors.

I N T R O D U C T I O N

noted that chronically homeless people"typically have many dif ficult-to-treatdisabilities or mental health problems thatlead to severe personal suffering" and thatserving these people "consumes a large shareof resources dedicated to the homeless." Italso promised to work to move more people"from the dangerous streets to safe, permanenthousing" and stated that ending chronichomelessness in the next decade is a topobjective.4

Indianapolis also must implement strategiesthat link homeless people to permanent,affordable housing. Suggestions for movingforward are outlined in this Blueprint.

In the immediate future, the Blueprint calls foradditional resources to strengthen the currentsystem of serving homeless people. But overtime, the investment in affordable housing willenable the city to use existing emergencyservices such as homeless shelters, hospitalemergency rooms, and jails more effectively.

In addressing the problem of homelessness,Indianapolis has some very importantadvantages. They include an unusually largesurplus of housing – about 13,000 vacantrental units – that with an appropriate levelof subsidy can be made available tohouseholds with extremely low incomes.5

And Indianapolis benefits greatly from itsdedicated community leaders and providersof services to homeless people. Many haveworked tirelessly for months to shape thestrategies incorporated in this document.

Ending homelessness will not be quick or easy.But with sustained support from the community,these strategies will, over time, endhomelessness in Indianapolis.

Homelessness is increasing. Many cities facea growing problem with homelessness. In anannual survey of about 25 cities, the U.S.Conference of Mayors has consistently reporteddouble-digit increases in requests foremergency shelter and food. Nationally, 37

percent of requests for emergency shelter wentunmet in 2001, the highest figure in at least16 years.6

In Indianapolis, homeless shelters often filltheir beds and have to place people in needon mats on the floor. Still others are turnedaway for lack of room, particularly at familyshelters. In recent years, demand for emergencyfood at local food pantries has grown steadily,a sign that more families are struggling toavoid homelessness.7

Many agencies that aid homeless people arestretched to the limit as they struggleto meet the need. It is not unusual forharried shelter officials to jugglefundraising and administrative dutiesalong with daily crises – such as aclogged drain or a broken water heater– often on limited budgets.

There are many types of homelesspeople, and they often have multipleneeds. The reality of homelessness, inIndianapolis and other communities,belies the stereotype of a chronicallyhomeless man with mental illness oraddiction problems.

Families make up about 40 percent of thelocal homeless population. Twenty years ago,family homelessness was rare. But nationally,families comprise the fastest-growing groupof homeless people.8

Homelessness hurts many children. About4,500 local children are homeless annually.Homeless children are much more likely tosuffer from mental and physical healthproblems. They are at greater risk of failingin school, in part because they often changeschools as their families drift from home tohome, experiencing one housing crisis afteranother.9 Not helping more families to stayhoused will foster a new generation of poor– and possibly homeless – adults.

Many homeless adults and young peoplelive on the street. Still others live in sheltersfor extended periods. A 1999 study estimated


C H I P • 3 1 7 . 6 3 0 . 0 8 5 3 • w w w. c h i p i n d y. o r g 8

Over the course of

a year, 3,500

Indianapolis

neighbors will

become homeless.

22,000 families

also are

threatened with

homelessness.

I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n

T h e C h a l l e n g e

Unmet Demand for Shelter

40

30

20

10

090 92 94 96 98 ‘00

Perc

ent

YearF i g u r e 4

that more than 700 homeless adults, most ofthem men, live on the Indianapolis streets everynight. Many are seriously mentally ill or haveother problems that inhibit their use of theexisting shelter system. A 1995 study alsoidentified more than 500 homeless youths inIndianapolis.10

At least seven local homeless people died onthe streets during the winter of 2001–2002.Three of those deaths – one from hypothermiaand two from smoke inhalation from fires inabandoned buildings – were directly linked tolife on the street.11

Other homeless people live in shelters for longperiods. Many chronically homeless people,like homeless people living on the street, sufferfrom multiple challenges that can include mentalillness, substance abuse, or medical, legal, andvocational problems.12

Significant numbers of homeless peoplecome from prisons, jails, or the foster caresystem. A month-long survey of adults inIndianapolis homeless shelters indicated thatabout 15 percent of respondents reported beingrecently released from prison or jail. Each month,the state prison system releases about 200

inmates into Marion County.13 At least 10.5percent of these persons – 21 people a month,or 252 a year – report a need for help in findinghousing. These adults often need treatment formental illnesses or addictions as well.

The survey also found that 8 percent ofrespondents reported spending time in fostercare. Each year, about 100 18-year-olds "ageout" of foster care in Marion County. Fortypercent of these young adults will becomehomeless or incarcerated within 18 months.

Many homelesspeople have familyhistories touched byc h i l d a b u s e ,domestic violence,or other crimes. Ina 1999 sur veyconducted at localfood pantries andother aid sites, onein three respondentsreported that they ortheir families hadbeen vic t ims ofrobbery, physicalassault or domesticviolence – traumaticevents that canhinder their abilityto function.14

Whether they are young or old, living in familyunits or on their own, nearly all homelesspeople share a common bond: a need forhousing they can afford.

Homelessness results from many factors,including low-paying jobs, addictions, andmental illness, according to the 2001 surveyby the U.S. Conference of Mayors. But theleading reason for homelessness, accordingto the survey, is a lack of affordable housing.15

According to the federal government, housingis affordable if it costs no more than 30percent of a family's income.16 But manyextremely low-income people pay too muchfor housing and fall into homelessness, often

9

The leading

reason for

homelessness is

a lack of

affordable

housing.

-U.S. Conference

of Mayors

F i g u r e 5

Ten-Year Cost SavingsPrison vs. Supp. Housing

60,000,000

50,000,000

40,000,000

30,000,000

20,000,000

10,000,000

0

Supp. Housing

Prison

Veronica Davis and her children at a local homeless shelter

Significant numbers of homeless people come fromprisons, jails or the foster care system.

I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o nB L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i s

T h e N e e d f o rA f f o r d a b l e H o u s i n g

must be helped to find housing they can affordas soon as possible – that is, as soon as theyare willing to be "good neighbors" by complyingwith the terms of a lease. This "housing first"approach has been effective in combatinghomelessness in o ther communi t ies .

"Housing first" embodies the belief that a safe,affordable home is necessary to help homelesspeople work toward recovery or employment.It is a departure from the widely used approachthat emphasizes that homeless people mustachieve sobriety or take other steps towardrecovery before they are helped to find anaffordable place to live.

Philip Mangano, executive director of the U.S.Interagency Council on Homelessness, haspraised the "housing first" strategy, saying it"puts the emphasis on the appropriate antidoteto homelessness: housing. And that housingbecomes the nexus point for the delivery ofsocial services."20

In this Blueprint, the combination of affordablehousing and social services is known as "housingplus."

Housing PlusFor many homeless people, simply gainingaccess to affordable housing is not enough.Many have the greatest success remaininghoused when they live in "supportive housing"– affordable housing linked to employmentassistance programs and other social services.These services can include help from casemanagers – persons who connect their clientswith a variety of services ranging from welfareand Social Security benefits to medical careand treatment for mental illnesses and addictions.

This Blueprint recommends a "housing plus"approach that encourages homeless people toaccept the mental health treatment, substanceabuse treatment, or other support services theyneed to abide by the terms of their leases.

Other programs have found that this approach

repeatedly. Experts agree that a shortfall inaffordable housing – a shortfall that has grownin the past 30 years – has helped to fuel anincrease in homelessness.17

The dimensions of the affordable housingshortfall for Indianapolis' low-income populationare well known. More than 22,000 low-incomefamilies had "worst case" housing needs in1996, according to the federal government.Some lived in substandard housing, but thevast majority – 83 percent – had "worst case"needs because they paid more than half of theirmodest incomes on housing.18

Recognizing the shortage of affordable housing,the Indianapolis Housing Task Force concludedin 1998 that the city needed to make at least12,500 rental units affordable to people withthe lowest incomes, along with appropriatesupport services.19

The Blueprint planning process confirmed that

addressing this shortfall is crucial to endinghomelessness in Indianapolis.

C H I P • 3 1 7 . 6 3 0 . 0 8 5 3 • w w w. c h i p i n d y. o r g 1 0

Moving homelesspeople off the streetand into shelter orother appropriatehousing.

Moving people who areliving in shelters forlong periods into moreappropriate, cost-effective housing.

Reducing chronichomelessness andrepeated periods ofhomelessness.

Preventing manypeople from becominghomeless, primarily bymaking existinghousing moreaffordable.

Over time, this approachwill end homelessness by:

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sI n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n

This Blueprint calls for making 1,700 additional rental unitsaffordable to the poorest of the poor over five years and providingsupport services for residents of 2,100 units.

This Blueprint calls for eliminating homelessnessby helping people in need to achieve the greatestpossible independence and stability byimplementing the following strategies.

Homelessness PreventionBecoming homeless is not only traumatic anddestabilizing for people in need, but alsoexpensive for taxpayers. With some exceptions– notably, cases of domestic violence – peoplemost likely to become homeless must be helpedto remain in their housing through rent subsidiesor other assistance.

Housing FirstPeople who have already become homeless

T h e A p p r o a c h f o rE n d i n g H o m e l e s s n e s s

I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o n I n t r o d u c t i o nB L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i s

1 1

Enhanced managementand building security

Housing/ServiceActivity

EstimatedCost

Possible FundingSource

$ 48,200,000

$ 11,500,000

$ 13,100,000

$ 1,500,000

M a k i n g 1 , 70 0 u n i t saffordable to homelessand near-homeless people

Rent subsidies for 1,700units

Support services forpeople in 2,100 units

One-time cost. This could be funded throughmore efficient use of existing public sourcesand from new public and private sources.

This annual cost could be funded, in part, byusing existing, and securing new, Section 8vouchers.

This estimated annual cost could be fundedthrough new funding sources or existinggovernment programs such as Shelter PlusCare, Housing Opportunities for Persons WithAIDS, the Community Development BlockGrant, Medicaid and Medicaid Waiver programs,Temporary Assistance to Needy Families, orthe Marion County township trustees.

Several existing sources of funds could be usedand new sources may need to be identified.

Table 1. Estimated Housing and Service Costs

effectively alleviates homelessness. In one NewYork City program, for example, nine out of10 seriously mentally ill homeless peopleassisted through the initiative remained housed18 months later. Seventy percent agreed topsychiatric care and to take prescribedmedication even though doing so was not arequirement for becoming or remaininghoused.21

The Housing First and Housing Plus strategieswill be difficult to implement in Indianapolisunless the city's severe shortfall in affordablehousing is addressed. Accordingly, this

Blueprint calls for dramatically expandingthe supply of housing affordable to thepoorest of the poor.

Based on guidance from the Corporation forSupportive Housing, a national leader indeveloping housing strategies for homelessand near-homeless people, this Blueprint callsfor making 1,700 additional rental unitsaffordable to Indianapolis residents with thelowest incomes during the first five years ofthe 10-year plan and providing supportservices for residents of these units. Another400 families already in affordable housingalso would receive support services to helpkeep them from becoming homeless.

C S H d e v e l o p e d t h e s e h o u s i n grecommendations for the Coalition forHomelessness Intervention and Prevention, alocal nonprofit that provided staff support todevelop the Blueprint. Before issuing itsrecommendations, CSH reviewed city reportssubmitted to the U.S. Department of Housingand Urban Development and interviewed stateand local government officials, local housing

becoming homeless.

Increase access to, and coordination of,housing and services.

Enhance services in specific areas of need.

Coordinate service systems for specialpopulations.

Take steps to ensure that the Blueprint isimplemented and that it ef fectivelyaccomplishes its goals.

Details for carrying out these initiatives arediscussed later in this plan.

developers, and other professionals familiarwith local real estate market conditions.

While the housing units created by the Blueprintwill be permanent, it is likely that somehouseholds may move into other housingsettings over time based on the experience ofother cities.

Eventually, this approach will end homelessnessby:

Helping homeless people move off thestreet and into appropriate housing.

Assisting people who live in shelters forlong periods in finding more appropriate,cost-effective housing.

Reducing chronic homelessness and repeat-ed periods of homelessness.

Preventing many people from becominghomeless, primarily by making existinghousing more affordable.

The overall cost of providing affordable housingor services for 2,100 units, based onCorporation for Supportive Housing estimates,is identified in the table on page 11.

It is important to note that these estimates arebased on full occupancy. Some time will lapsebefore all the units are made affordable,occupied, and provided with support services.

While providing much more permanent,supportive housing is critical to endinghomelessness in Indianapolis, the Blueprintoutlines a variety of other initiatives. In general,these initiatives will:

Strengthen efforts to prevent people from



A S u m m a r y o fB l u e p r i n t S t r a t e g i e s

Strategies aimed at achieving the Blueprint’s goal of endinghomelessness were formulated after extensive research and inputfrom a wide range of people in Indianapolis and elsewhere.

How Th i s B luepr in t Was Deve loped How Th i s B luepr in t Was Deve loped How Th i s B luepr in t Was Deve loped

1 3

Strategies to achieve the Blueprint's goal ofending homelessness were formulated afterextensive research and input from a widerange of people in Indianapolis and elsewhere.Information to develop the Blueprint'srecommendations came from:

Discussions with national exper ts onhomelessness. Several of these experts alsoprovided written comments on drafts of theBlueprint.

Local and national consultants hired to assessand make recommendations concerningspecific areas of need, including affordablehousing, case management, employment,mental illness, addictions, children and families,and people recently released from the criminaljustice system.

Project teams composed primarily of localproviders of services to homeless people. Theymet regularly to address specific service areas,such as employment and training, treatmentfor mental illnesses and addictions, casemanagement, and services for children andyouths.

Work teams of Blueprint Committee members,

Surveys of homeless people at local day servicecenters and shelters. More than 700 responsesprovided valuable information.

Focus groups assembled to assess the views ofhomeless people. These groups involved 69people at 13 shelters and other service sitesand 12 homeless people living on the street.Seven Spanish-speaking people were included.Six other focus groups were held with familiesreceiving public aid and with other familiesliving in shelters and transitional living programsto assess their need for childcare and otherservices.

An analysis of concerns voiced byrepresentatives of about 150 organizationsand programs contacted during the Blueprintprocess. Those involved included formerhomeless people; members of federal, state,and city government; business leaders; providersof services to homeless and near-homelesspeople; law enforcement officials; and othercommunity leaders.

Many of these people attended meetings of theBlueprint Committee, its work teams and projectteams, and reviewed and commented on fivedrafts of the Blueprint that were widelycirculated.

Several national experts also provided written comments ondrafts of the Blueprint.

H O W T h i s B l u e p r i n t W a s D e v e l o p e d

Dan Shepley, executive director of CHIP, providing an overview of the Blueprint to theHousing Task Force.

Following the presentation, NanRoman, president of the NationalAlliance to End Homelessness,delivered remarks about theBlueprint, calling it "notably

A final draft of the Blueprint was formallyunveiled at a public meeting on April 18,2002 at the Fountain Square Theatre inIndianapolis. More than 300 people attended,including Mayor Bart Peterson, members ofthe Indianapolis Housing Task Force, otherelected officials and community leaders,advocates, and current and former homelesspeople.

The same morning, The Indianapolis Starhighlighted the event with a front-page storyand an editorial that endorsed therecommendations.

"A year in the making, the blueprint deservesstrong support from the community," the

editorial noted.

The public meeting began with a music andvideo display prepared by Brian Phillips ofSchneider Corp. The Blueprint's keyrecommendations then were outlined by aser ies of speakers. They inc luded:

1 4C H I P • 3 1 7 . 6 3 0 . 0 8 5 3 •

The Blueprint’s Final Draft - April 18, 2002 The Blueprint’s Final Draft - April 18, 2002 The Blueprint’s Final Draft -

T h e B l u e p r i n t ’ s F I N A L D R A F T – A p r i l 1 8 , 2 0 0 2

Sound plan to fightcity’s homelessness

Our position:Data show a dual strategy of housing and support

services will reduce the homeless population

t last, an effective strategy has emergedto help Indianapolis reduce the numberof homeless. The solution looks simple,but will require moral, financial andtechnical support from many sectors. Thecity must provide more affordable housingcoupled with support services.

The Blueprint to End Homelessness will be presentedtoday in Indianapolis by the Housing Task Force. Itproposes to combine affordable housing opportunitieswith comprehensive support services such as drugtreatment and job counseling, a tactic that has workedwell elsewhere but has not been tried here in acomprehensive way. Studies have found that many Indianapolis residentssuddenly become homeless when their incomes dropbelow the cost of available rental housing. Those familiesinitially end up in shelters, then on the streets. An estimated 15,000 people are homeless in Indianapolisat some time during the year, including 3,500 each night. That’s not counting the folks living temporarily withrelatives or friends. In 1998, the task force suggestedthat Indianapolis create 12,500 rental units affordablefor people at the bottom of the income ladder. The blueprint, developed at the urging of Mayor BartPeterson, suggests that Indianapolis take smaller stepsfirst. It calls for adding 2,100 affordable housing unitswithin five years and tying them to support services,

with the goal of preventing the homeless from returningto the street. Indianapolis has about 13,000 vacant rentalunits now, some of which could be made affordable withvoucher subsidies. The document leans heavily on coordinating servicesystems for the homeless after they've been housed.There is a good reason to be optimistic about thatapproach. Data from other cities where housing andsupport services have been combined are impressive.Indianapolis has modeled much of this plan after the onein Columbus, Ohio, which the General Accounting Officelauded for creating 800 supportive housing units forchronically homeless men, more than half of whom didn’treturn to the street. The Coalition for Homelessness Intervention andPrevention will implement the program. Agencies servingthe homeless must build on the $13 million spent annually

on homelessness here by local, stateand federal governments and $9million from private donors. Thiswill require a concerted, coordinatedeffort from all sectors of the city. A year in the making, the blueprintdeserves strong support from the

A

The Indianapolis StarApril 18, 2002

(reprinted with permission of TheStar)

Bill Moreau,Blueprint Committee ChairmanSusan Alexander,Domestic Violence SurvivorRick Alvis,President, Wheeler Mission MinistriesJohn Brandon,Executive Director, Marion CountyCommission on YouthBill Bickel,Director, Holy Family Shelter andTransitionalHousingSam Brown,Head Chef andTrainer, SecondHelpingsChar Burkett-Sims,Manager ofTANF Policy,Indiana Familyand SocialServicesAdministrationMoiraCarlstedt,President,IndianapolisNeighborhoodHousingPartnershipAlison Cole,Deputy

Kelley Gulley,Board President, CHIPDennis Jones, Housing Director,Hoosier Veterans AssistanceFoundationFred Koss,Executive Director, Information andReferral NetworkShawna Lee, former foster childRandy Miller,Executive Director, Drug FreeMarion CountyDan Shepley,Executive Director, CHIPSteve Thomas,Chief Operating Officer,

Corporation for Supportive HousingJohnie Underwood,Assistant to the Commissioner,Indiana Department of CorrectionSarge Visher,Chief of Staff, Office of U.S. Rep.Julia Carson

During the first five years, this Blueprintrecommends making 1,700 units affordablefor chronically homeless people and thosemost vulnerable to becoming homeless.Chronically homeless people currentlyconsume a disproportionate share of costlyemergency resources. The Blueprint alsorecommends creating support services forresidents of these units and 400 otherhouseholds at risk of homelessness.

With a shortfall of perhaps 12,500 rentalunits affordable to its low-income residents,Indianapolis cannot end homelessness withouta sustained effort to create more affordablehousing – and specifically, supportive housing.

To formulate a strategy for addressing thisneed, the Coalition for HomelessnessIntervention and Prevention hired theCorporation for Supportive Housing, which

has spearheaded development of supportivehousing in communities throughout the nation.

In its work for the Blueprint, CSH's dutiesincluded: 1) Recommending strategies forcreating a portion of the 12,500 units in fiveyears, both to set realistic short-term goalsand to build momentum for making additionalhousing units affordable in succeeding years.2) Making recommendations about thehomeless and at-risk households that shouldbe prioritized for occupying the new housing,

based on local efforts to identify the mostvulnerable populations. 3) Estimating costsand suggesting one possible funding scenario.4) Suggesting potential public policy changesand systems improvements needed to makethe units affordable and to provide supportservices.

CSH prepared its recommendations after itsstaf f members made several visits toIndianapolis, conducted interviews with localpeople familiar with housing and povertyissues, and collected data about the amountof public funding currently available to thecity of Indianapolis.

In a written report, CSH recommended thatIndianapolis make 1,700 units affordable tohomeless and near-homeless people duringthe first five years and provide support servicesto residents in 2,100 units. In addition, CSHnoted:

Meeting the suggested five-year goal willrequire an extraordinary level of politicalcommitment and publ ic investment.

Success is possible if community supportcan be fostered and maintained over the nextfive years.

To reduce the number of people who arehomeless, Indianapolis will need to use itsexisting resources more efficiently to leverage

other public funding, commit to increasing itsinvestment in rental housing affordable toextremely low-income households, and workto establish new partnerships amonggovernment agencies and the private sector.

The effort to provide additional permanent,affordable housing should be complementedby ongoing, appropriate investments in thefull range of services needed by homelessindividuals and families to ensure the successof the housing plan.

Strategies Addressing Housing Needs Strategies Addressing Housing Needs Strategies Addressing Housing Needs

1 5

Gregg Clark, a local homeless person

Success is possible if community support can be fosteredand maintained over the next five years.

S T R A T E G I E S A d d r e s s i n g H o u s i n g N e e d s

CSH suggested that, over time, creating accessto additional affordable housing units will likelyreduce the burden on emergency andtransitional systems and allow for an evengreater investment in permanent, affordablehousing.

Communities around the nation have reachedsimilar conclusions. For example, Columbus,Ohio set goals for reducing shelter beds aspart of a major effort to develop permanent,supportive housing for chronically homelesspeople. Columbus officials found that these

chronically homeless people, who make up 15percent of the homeless population, used morethan half of the service system's resources.22

A study last year led by Dennis Culhane of theUniversity of Pennsylvania found that reductionin hospitalizations, incarcerations, and shelterstays nearly covered the cost of developing,operating, and providing services in supportivehousing. The net cost of the average supportivehousing unit was only about $995 a year.

In other words, based on the mostconservative assumptions –without taking into account thepositive effects on health statusand employment status, orimprovements to neighborhoodsand communities – it costs littlemore to permanently househomeless people and providethem with support services thanit does to leave them homeless.

Further evidence shows thatsupportive housing provides otherpublic benefits. An analysis ofthe Connecticut SupportiveHousing Demonstration Programfound that supportive housingimproved neighborhood safetyand beautification, increasing orstabilizing property values in mostcommunities.23

In consultations with local stakeholders, theCorporation for Supportive Housing suggestedthat the Indianapolis residents listed in Table2 be prioritized for access to affordablehousing linked to services over the next fiveyears.

Another chart on page 17 describes howthe 2,100 housing units would be allocatedto serve homeless people and householdsat risk of becoming homeless. The allocationswere determined based on several factors,including the estimated size of each group

relative to other groups of homeless and near-homeless people in Indianapolis and the typesof housing most immediately available.

This housing would be provided in a varietyof settings. They would include, among others,multi-unit buildings where all the units aredesigned to serve homeless or near-homelesspeople, units set aside for these populations

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sStrategies Addressing Housing Needs Strategies Addressing Housing Needs Strategies Addressing Housing Needs


Make 1,700 rentalunits affordable topeople with the lowestincomes in the firstfive years.

Make support servicesavailable to persons in2,100 units.

Identify prioritypopulations to residein these units.

Utilize the existinghousing stock.

Convene animplementation groupof community leadersto execute the housingplan.

Table 2. Household Definitions

Long-termhomelessadults

Streethomeless

Long-termhomelessfamilies

Homelessyouths

Individualsleavinginstitutionalsettings

Vulnerablehouseholds

People who have experienced multiple episodes of homelessness overseveral years and rely on emergency shelters and other temporaryarrangements for housing.

Young people estranged from their families who live on the streets, haveno stable housing, and are not well served by current housing options foradult homeless people.

People who would likely become homeless soon after leaving institutionalcare (such as a correctional facility or foster care) if suitable housing isnot readily available and accessible.

Households paying too much for housing or experiencing other stressorsthat might be alleviated through rent subsidies or other assistance.

The net cost of the average supportive housing unit was onlyabout $995 a year. - Culhane study

T y p e s o f H o u s i n g

Single adults who currently live on the streets or in abandoned buildingsand are reluctant to accept current housing options such as emergencyshelters or transitional housing programs.

People who have been homeless repeatedly, living in emergency sheltersor "doubled up" with relatives or friends.

the units accessible to needy persons. Possiblesources of capital funding include:

Low Income Housing Tax Credits administer-ed by the Indiana Housing Finance Authority

U.S. Department of Housing and UrbanDevelopment McKinney - Vento funds forhomeless service programs

Federal HOME and Community Develop-ment Block Grant funds allocated to the stateand city

U.S. Department of Veterans Affairs funds

Federal Home Loan Bank funds

Investments from foundations and the UnitedWay

In addition, an estimated $11.5 million inannual operating subsidies will be needed tomake the units affordable to low-incomeresidents and to provide adequatemaintenance of the units. (This estimate isbased on annual costs once all the units areoccupied.)

Much of this cost could be paid through federalSection 8 vouchers issued by the IndianapolisHousing Agency. These vouchers subsidizethe difference between the rent paid by atenant and the fair market rent of the unit.

within a larger building, and "scattered site"units distributed throughout a neighborhood.

A more detailed description of the possiblerange of housing options can be found in theCSH report. It is available on the CHIP Website, www.chipindy.org.

Indianapolis has an estimated 13,000 vacantrental units not currently affordable to thepoorest of the poor. The report identified thissurplus as "an unusual and important resource"in meeting the need for affordable housingfor the extremely poor.

Due to this surplus, the report suggests that itmay not be necessary to build a large numberof new units to providehousing for people mostv u l n e r a b l e t ohomelessness. Instead,much of the housing needcan be met through rentsubsidies and rehabilitationof existing units.

An estimated $48.2 millionwould be required forcapital funding needs –funds required to acquire,construct, or refurbish unitsand provide the necessaryreserve funds and incentivepayments to encourageprivate landlords to make

Strategies Addressing Housing Needs Strategies Addressing Housing Needs Strategies Addressing Housing NeedsB L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i s

1 7

H o u s i n g C o s t s a n dF u n d i n g S o u r c e s

Table 3. Unit Distribution

Household type Number of units tobe made affordable

Homeless youths

Long-term homeless adults

Street homeless adults

Long-term homeless families

At-risk adults

At-risk families*

People leaving the criminal justice system

People leaving the foster care system

Total units

100

200

250

200

200

800*

120

230

2,100* 400 of these households would be assumed to reside in affordable housing but need

services to maintain their housing.

Drawing on programs established by othercities around the country, CSH described typicalservice strategies linked to different housingmodels that have proved effective for servinghomeless people and households most at riskof becoming homeless.

CSH estimated that about $13.1 million wouldbe needed annually to provide support servicesto ensure that people residing in these unitslive as independently as possible. In othercommunities, a variety of government programsprovide funding, including Shelter Plus Care,Housing for People with AIDS, CommunityDevelopment Block Grants, Medicaid andMedicaid waiver programs, TemporaryAssistance for Needy Families, and state andlocal general fund dollars.

The Blueprint recommends creation of animplementation group with representativesfrom city government, the Indianapolis HousingAgency, other local and state officials, socialservice providers, and other community leadersto ensure that the housing and service strategiesare coordinated and carried out.

This Blueprint also recommends that a leadentity responsible for carrying out the 10-yearBlueprint assemble this implementation groupand take steps to provide the necessary technicalsupport and other assistance needed to reachthe five-year goals outlined in the housing plan.The Coalition for Homelessness Interventionand Prevention would become this lead entity.Other functions of the lead entity are describedlater in this report.

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sStrategies Addressing Housing Needs Strategies Addressing Housing Needs Strategies Addressing Housing Needs


Potent ia l Model for Serv icesand Typica l Funding Sources

Key Stakeholders inImplementat ion

Working the front desk atthe Blue Tr iangle , ahousing development forlow-income Indianapolisresidents, Jeanette Tibbseasily juggles a number oftasks.

As she greets residents,confidently answers thephone, and keeps an eyeon the front door and ar o w o f s u r v e i l l a n c emonitors, she bears littlere s e m b l a n c e to t h ewoman who once wasm e n t a l l y u n s t a b l e ,u n e m p l o y e d , a n dhomeless.

Tibbs said she suffered anervous breakdown andwas hospitalized after atroubled life that includedfinancial problems, periodss p e n t i n h o m e l e s sshelters, and a difficultrelationship with herhusband, from whom sheis separated.

When she got out of thehospital in 1997, relativeswere unprepared to takeher in, she said.

She got a fresh start atthe Blue Triangle, whichprovides an array of socialservices to its residents– many of whom have physical and mental disabilities– to help them become as independent as possible.

r i s i n g

Create a neighborhood-basedhomelessness prevention system toidentify and assist people most likelyto become homeless.

Homeless people tend to come from high-povertyneighborhoods near Downtown.24 Manyhomeless people from these neighborhoodsface a variety of challenges that often includehistories of domestic violence, child abuse, ordrug or alcohol abuse.25

This Blueprint cal ls for establishinghomelessness prevention programs in theseor other targeted neighborhoods to identifypeople most vulnerable to becoming homelessand work to keep them from falling intohomelessness.

Input received from homeless people in focusgroups underscored the need for preventionservices, including those provided by"mainstream" social service agencies such asthe Indiana Family and Social ServicesAdministration and township trustees. A reportsummarizing the views of homeless peoplenoted:

"Participants complained of not knowing whatwas available to them until they had losteverything. Trustees, churches, schools, foodpantries, welfare workers, etc. were cited asimportant possible information and referralagents."26

Action steps include:

Improve services to persons withrecent criminal backgrounds –including offenders released from jailor prison and other offenders incommunity corrections programs –to ensure they do not becomehomeless.

According to a recent survey, about 15 percentof adult homeless people living in emergencyshelters in Indianapolis said they had recentlybeen released from a prison or jail. Besidesthese 101 persons, 17 others said they hadrecently left a jail or prison and were livingon the street. Most of the people who reportedthat they had been recently released from thecriminal justice system were men.

Besides having criminal histories – often a

Strategies for Preventing Homelessness Strategies for Preventing Homelessness Strategies for Preventing Homelessness

1 9

These prevention initiatives would build uponexisting neighborhood resources to help provideemployment assistance, housing subsidies, orother support services. The model for providingthis assistance would be similar to thehomelessness prevention demonstration projectscurrently administered by CHIP. As the leadentity for the Blueprint, CHIP would helpneighborhoods develop tailored strategies toassist their most vulnerable residents to stayhoused.

Determin ing, by la te 2003, theneighborhood sites that are most suitableto provide homelessness prevention services.(Assistance sites could include churches,food pantries, community centers, workforcedevelopment centers, schools, neighborhoodgroups , communi ty deve lopmen tcorporations, or other entities.)

By late 2003, developing a profile ofhouseholds most at risk and most likely tobenefit from assistance.

Providing prevention assistance beginningin 2004 and extending this assistance toa minimum of 500 households by 2008.

Create a neighborhood-based homelessnessprevention system.

Improve services topersons with recentcriminal backgrounds.

Improve housing andservices for youngadults leaving the fostercare system.

S T R A T E G I E S f o r P r e v e n t i n g H o m e l e s s n e s s

The Blueprint calls for a number of specificinitiatives to prevent homelessness. Strategiesinclude:



Strategies for Preventing Homelessness Strategies for Preventing Homelessness Strategies for Preventing Homelessness

barrier to finding a job or housing – manypeople released from incarceration faceadditional challenges, according to the survey.About one-fourth admitted having seriousmental health problems, though fewer thanhalf said they received treatment for thoseproblems. And nearly all said their currenthomelessness was caused by problems relatedto rent affordability, job loss, or eviction.27

Former criminal offenders released into thecommunity often commit new crimes or violateprobation or parole. State and national prisondata indicate that about 40 percent of thepopulation released from custody re-offendswithin a year. Many of these former offendersneed treatment for addictions or other mentalhealth problems.

Additional programs are needed to helppeople with criminal backgrounds successfullyreturn to society, both for their own good andto help avoid the high public cost of providingemergency services when they becomehomeless – or of housing them again in prisonsand jails when they commit new offenses.

A study conducted for the Blueprint indicatesthat a variety of efforts are under way toimprove transition services for ex-offenders,but that these efforts need to be better fundedand coordinated.28 As the lead entity for theBlueprint, CHIP will work with otherstakeholders to develop coordinated policiesand services aimed at preventing formercriminal offenders from becoming homeless.

Recommendations include:

Setting community goals that emphasizereducing the number of former criminaloffenders in the homeless population andensuring that increasing numbers of peopleleaving incarceration achieve stable housingand employment.

Assessing stakeholders’ progress inachieving these goals.

Exploring replication of programs shownto be effective.

Holding regular meetings of stakeholdersto assess progress in preventing offenders

For most of his adult life, Garland Boone has lacked ahome of his own.

Repeatedly arrested for shoplifting to support anaddiction to drugs and alcohol, he spent long years inprison. When he was not incarcerated, he lived in motelsor with family members or friends – and quickly fell backinto the o ld habits that got h im in trouble .

In late middle age, when fellow inmates called him "Pops,"he considered suicide, despairing of ever breaking freefrom his self-destructive ways.

But today, Boone, 55, holds down a job as an outreachworker for the Marion County Health Department,belongs to a church and a credit union, rents a tidy, five-room home, and pays his own bills.

He received a new lease on life when a parole officer gavehim an ultimatum: enter a residential drug treatmentprogram or return to life behind bars.

He chose the treatment program operated by Volunteersof America and, at age 51, began turning around his life.

The end to old habits did not come easily. He had beenabusing substances since his teen years, starting withcough medicine, then moving on to alcohol, cocaine, andheroin.

"I didn't know how to live life," Boone said. "Through myaddiction problems, jails and institutions had taken overmanagement of my life. Talk about scary: living withoutalcohol and drugs. I was like a child in a man's body."

But little by little, the routine and support offered byVolunteers of America – and later, by the Lucille Rainesresidence, a home for recovering addicts – helped himmove forward. Eventually, he was able to move out on hisown.

"I never thought I'd have my own place," Boone recalled."I always thought I 'd be dependent on someone.

"But today, I like getting up and being responsible. There'snothing better than paying your own bills – and beingthere, trying to help the next person."

profiler i s i n g f r o m t h e s t r e e t s

As the lead entity, CHIP will develop a planin 2003 for reaching these goals incooperation with representatives from theIndiana Department of Correction, the state'stask force on homelessness, and otherentities.

In 2003, CHIP also will explore assembling atask force of representatives from the statefoster care and prison systems, the stateDivision of Mental Health and Addictions,and other institutions that provide long-term

Strategies for Preventing Homelessness Strategies for Preventing Homelessness Strategies for Preventing HomelessnessB L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i s

2 1

15 percent ofadult homelesspeople living in

emergencyshelters in

Indianapolis saidthat they hadrecently been

released from aprison or jail.

residential care to persons who, upon release,are at risk of becoming homeless. This taskforce would focus its discussion on policychanges that could reduce the likelihood thatpeople released from these systems will becomehomeless.

Improve housing and services toyoung people "aging out" of fostercare to ensure a successfult ra n s i t i o n to i n d e pe n d e n ce .

About 100 young people become too old tocontinue in the foster care system each yearin Marion County.29 Over a 10-year period,1,000 local foster children will turn 18 and"age out" of foster care.

Currently, an estimated 40 percent of youngpeople aging out of foster care becomehomeless or incarcerated within 18 months.No longer the responsibility of the state, manyof these young people are left on their ownand lack the skills and supports to make asuccessful transition to healthy adulthood.

While Indianapolis must address the housingneeds of all unattached street youths, as lateridentified in this plan, the Blueprintrecommends the following strategies to preventhomelessness among young people who nolonger know a foster home as their home.

Work with developers and care providersto create 230 units over the next five yearstargeted to former foster youths.

Assist stakeholders in preparing atransition plan to connect young peoplewho have aged out of foster care withappropriate housing, as outlined in theBlueprint's five-year housing plan.

Train service providers to identify a historyof foster care among youths and youngadults. Coordinate services with appropriateagencies to ensure these young peoplehave access to comprehensive supportservices.

Over a 10-year period, 1,000 local foster children will turn 18and “age out” of foster care.

from becoming homeless – and to considerchanges in policies and procedures to furtherthis objective.

Focusing services on offenders most at riskof becoming homeless, including those wholack supportive families and have mentalhealth problems.

Ensuring that appropriate supportivehousing for offenders is developed asoutlined by the five-year housing plan andassessing the need for additional housingafter five years.

Educat ing the communi ty aboutreintegration challenges faced by peopleleaving incarceration and the benefits ofenhancing services for this population.

Encouraging members of the faithcommunity to serve as mentors for personsleaving incarceration.

This Blueprint recommends strategies to helppeople gain access to housing and services,and to better coordinate housing and services,so that people in need are better able toremain housed or to gain housing if they arehomeless. These strategies include:

Coordinate housing and services bydeveloping a well-structured,s t r e n g t h s - b a s e d c a s emanagement approach that isresponsive to individuals andovercomes the fragmentation ofthese resources.

The Blueprint calls for case managers to haveaccess to a variety of services that allowthem to move homeless people into safe,affordable, and permanent housing as soonas possible, in the belief that all people cansuccessfully maintain housing when theyhave the proper supports.

The Blueprint recommends that casemanagers use the strengths-based approach– that is, provide services that build uponhomeless persons' strengths. All casemanagement will provide assertive andpersistent outreach; linkage with available,and integrated, community services;advocacy for needed services; and directservices when existing services are lacking. Case management will also engageindividuals in vocational, social, andrecreational activities that support, and build

upon, their skills and interests and assistthem to develop support networks and tomanage crises.

To match the level of services with the intensityof need, the Blueprint recommends threeca tegor ie s o f case managemen t :

Strategies for Accessing and Coordinating Housing and Services Strategies for Accessing and Coordinating Housing and Services


Coordinate housing andservices by developing awell-structured,strengths-based casemanagement approach.

Designate a caremanagementorganization.

Provide enhancedinformation and referralassistance and access tohousing and services.

Improve coordination ofstreet outreach, with thegoal of moving people offthe streets and intoshelter, housing, andservices, as appropriate.

Create a shelter forpeople who are publiclyintoxicated that providesprompt access totreatment.

Improve access totransportation to helppeople overcome barriersto obtaining employmentand services.

Help families accesssubsidized childcare.

Improve access tohousing and services forpersons who do not speakEnglish.

require frequent contact and permanentsupport services to remain housed inthe community.

Brief intensive for homeless peoplewho have temporary barriers to self-sufficiency and can live independentlyin community housing following a briefperiod of intensive services.

Preventive for people who areprecariously housed and need briefsupport services to achieve housingstability.

Increase the use of volunteers andmentors to strengthen the supportnetwork for homeless families andindividuals. Provide training for formerhomeless people who want to serve asmentors.

Provide education and training forformer homeless people to serve as casemanagers and case management aides.

Long-term intensive case management forpeople who are homeless due to chronicillness or disability or who have otherpermanent barriers to self-sufficiency.People with these needs likely will

The frequency of contact, length of casemanagement service, use of volunteermentors who can provide assistance, andaccessibility to a team of service providerswill vary based on individual needs.Further details regarding each level of casemanagement can be found in the Blueprint'sbackground documents.

Additional recommendations for casemanagement services include:

S T R A T E G I E S f o r A C C E S S I N G a n dC O O R D I N A T I N G H O U S I N G a n d S E R V I C E S

Identify a flexible funding pool accessibleto case managers so they can assisttheir clients in overcoming barriers tosuccess.

Develop a team approach to increasecoordination, collaboration, and

integration among service providersthat deliver case management services.

This Blueprint recommends that case managers use thestrengths-based approach.

Outreach services need to adopt the goal,successfully used in other communities, ofmoving homeless people into shelter for theirown safety rather than supporting their effortsto live on the streets.

In focus groups, homeless people voicedsupport for additional training for outreachworkers. Training among law enforcementpersonnel is particularly needed becausehomeless people indicated that lawenforcement involvement in outreach wouldnot be helpful. However, the experience of

other communities is that police involvementis essential to help move homeless peopleoff the street for their own well-being,particularly when the weather is dangerouslycold.31

Provide enhanced information andreferral assistance and access tohousing and services.

Homeless and near-homeless people may notget the help they need unless they areefficiently referred to sources of assistance.Despite a number of information and referralresources and more than 87 programs thatserve these populations, many needs gounmet.30

This Blueprint calls for several initiatives toimprove the ability of homeless and near-homeless people to access information thatwill lead them toward needed housing andservices.


2 3

Homeless people

who participated

in focus groups

stated the lack of

transportation

options makes it

difficult to access

better paying jobs,

especially those

located in the

suburbs.

Outreach services need to adopt the goal, successfully used inother communities, of moving people into shelter for their ownsafety.

Thomisha Smith and her son, Ajani, outside a local shelter.

Appoint an entity or entities to coordinatecase management. As lead entity for theBlueprint, CHIP would accomplish this goalthrough requests-for-proposals, contracts,partnerships, or other means. Two possibleoptions include 1) hir ing a caremanagement organization to coordinatesupport services with employment assistanceand housing for chronically homelesspeople and others living on the streets, and2) directing such an entity to coordinatethese services for residents of all 2,100units identified in the housing plan. Theseand additional strategies for coordinatingcase management will be explored.

Develop, with the Information and ReferralNetwork, a database of housing availableand affordable to homeless and near-homeless people. This database will beregularly updated and made available toservice providers.

Improve access to information abouthousing availability by hiring andcoordinating the work of "housingspecialists" who can maintain up-to-dateinformation about available housing stock.(The role of the housing specialist is alsodiscussed in the shelter and day servicessection of this report.)

Utilize ClientTrack to produce informationon real-time emergency shelter bedavailability and referral.

Strategies for Accessing and Coordinating Housing and Services Strategies for Accessing and Coordinating Housing and Services


Improve coordination of streetoutreach services in Indianapolis,with the goal of helping peoplemove from the streets and intoshelters, housing, and services, asappropriate.

Designating CHIP, as the Blueprint's leadentity, to develop a plan by mid-2003 tohelp existing outreach teams moreefficiently canvass areas with highconcentrations of homeless people. CHIPalso will be responsible for the actionsteps listed below.

Coordinating prompt responses to"hotline" calls received by the informationand referral system regarding homelesspeople living on the street and establishingprotocols for responding to these calls.

Coordinating with shelters to ensure thathomeless people identified at night andon weekends can be admi t ted.

Working with the courts to utilizeinvoluntary commitments when needed toprotect clients' safety, and with the policeto facilitate effective outreach.

Assessing the number of people on thestreet and their treatment needs with theassistance of outreach teams. Ensuringthat mental health professionals areinvolved in outreach.

Determining the types and amount oftemporary shelter needed to house peopleliving on the streets during the winter of2002–2003.

Providing information to Downtownbusinesses, neighborhood associations,public health nurses, food pantries, and

others about the need to move homelesspeople off the street for their own safety,and engaging these stakeholders indeveloping solutions.

Making recommendations for trainingprograms for outreach teams, the police,and referral programs that serve homelesspeople.

This Blueprint calls for the following:

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sStrategies for Accessing and Coordinating Housing and Services Strategies for Accessing and Coordinating Housing and Services


“I’m constantly late

for work. I am

supposed to be

there at 5:30 but

the childcare

doesn’t open until

6:00 a.m.”

-Mother in TANFfocus group

Intoxicated persons currently are incarceratedat the Marion County Lockup, with noprovision for treatment.

Creating a shelter for these people wouldincrease their access to treatment and alsofree up much-needed space in the jail system.Such a facility, known as an engagementcenter, sober up station or wet shelter, alsowould provide temporary refuge for homelesspeople whose drunken state makes theminappropriate to be housed in emergencyshelters. Homeless people who live on thestreet are more likely to drink alcoholfrequently and are at higher risk for illnessand fatalities.32

This Blueprint calls for identifying a site fora sober up station by 2004.

In other communities, including OklahomaCity and Columbus, Ohio, such shelters haveproved to be cost-effective alternatives to jail.Officials in Columbus also have found thata sober up station has been effective in linkingpeople with treatment services.

Create a shelter for people who arepublicly intoxicated that providesprompt access to substanceabuse treatment.

Assist individuals with accessinghousing, employment, and otherneeded services by expandingavailable transportation options.

Transportation is a complex community issue

that has long posed barriers for homelesspeople and others with limited incomes. Toaccess housing, employment, and servicessuch as medical appointments and childcare,homeless and near-homeless people needrel iable, f lexible, and cost-ef fect ivetransportation options. Action steps include:

Work with the City and IndyGo to promote

A sober up station also would provide temporary refuge forhomeless people whose drunken state makes them inappropriateto be housed in emergency shelters.

Identify ways to increase the availability ofchildcare subsidies by exploring strategiesthat have proved successful in other states.Strategies to be examined include avoluntary income tax check-off to makecontributions to a childcare fund (used inColorado), a motor vehicle registrationchildcare account (available in Kentucky),and funds made available from lotteries(used in Missouri).

Support the effort led by the Family andSocial Services Administration and theIndiana Association for Child Care Resourceand Referral that uses "Business PartnershipSpecialists" to work with employers to

Develop local and statewidestrategies for helping homelessand near-homeless people accesssubsidized childcare.

In focus groups conducted by the IndianaYouth Institute, participants remarked thatthe high cost of childcare was their biggestbarrier to maintaining employment.33 Fora single working mother with two childrenearning an income just above the povertyline, childcare expenses can exhaust up to75 percent of her salary.34

Obtaining subsidized childcare for homelessand near-homeless families remains asignificant challenge. Currently, only familieswho receive support through the TemporaryAssistance for Needy Families (TANF)


2 5

Most family shelters and transitional living programs do nothave the resources needed to provide on-site childcare.

and expand the concept of "Indy Flex,"IndyGo's transportation program thatconnects working families with jobs andemployers. IndyFlex provides services tocertain geographical zones not served bythe traditional bus system.

Work with shelters and transitional livingprograms to further assess transportationneeds of residents and expand availabilityof resources.

Explore the viability of expanding the FamilyServices Association's "Way to Work"program.

program are eligible for childcare subsidiesin Marion County. The state Family and SocialServices Administration reported a waitinglist of 7,000 children for that program at theend of 2001.35

Most family shelters and transitional livingprograms do not have the resources neededto provide on-site childcare. Currently, onlythree such programs provide care for homelesschildren, leaving many families without thisessential support.36

A comprehensive strategy for providingaccess to subsidized childcare for homelessand near-homeless families must bedeveloped. This strategy must identify waysto maximize state and local funding andinvolve employment and transportationproviders as stakeholders. It also must includean array of childcare services that promotenurturing and safe care for children.Preliminary recommendations for improvingaccess to childcare have been developed withhelp from the Indiana Youth Institute. As theBlueprint's lead entity, CHIP will identifyadvocacy groups and others in 2003 that canbe convened to further explore ways to helphomeless and near-homeless families moreeasily obtain childcare. Recommendationsinclude:

Develop an advocacy agenda that outlinesstrategies for immigration reform andincreased eligibility for services regardlessof residency status.

Enhance the cultural competency ofprogram administrators, staff, and thecommunity to help newcomers access safe,affordable housing and support services.

Eliminate exploitation in areas such ashousing, employment, legal services, tax



For a single

working mother

with two children

earning an income

just above the

poverty line

($15,000),

childcare expenses

can exhaust up to

75 percent of her

salary.

preparation, and credit issues by educatinghomeless people and service providersabout potential forms of exploitation. Workwith neighborhood groups, employers,landlords, and local businesses to reducethis problem.

Create a mechanism for individuals whoare undocumented to report exploitationwithout the threat – real or imagined – ofdeportation.

Enhance collaborative efforts amongagencies that serve homeless and near-homeless persons and those that servepeople who speak English as a newlanguage.

Increase the trust of individuals seekingservices by offering culturally competenteducation and resource materials. Providetraining to all providers regarding theappropriate use of translators. Specialemphasis should be placed on not usingchildren to translate complex subjects fortheir family members and on providinginterpreters who are fully fluent. N

support childcare for their employees.Strategies could include setting up tax-free deductions for childcare expenses orsubsidizing these expenses.

Expand the availability of before- andafter-school childcare options for homelessand near-homeless, school age childrenwhose parents are working or participatingin services. Work with the IndianapolisPublic Schools to consider policies thatwill allow school buses to transport childrento designated after-school sites. Assistanceshould be available at neighborhood-based homelessness prevention sites.

Investigate ways to provide care forchildren in shelters while their parents areworking or participating in services.Possible options include expandedpartnerships with faith-based agencies,community childcare, and expansion ofHead Start sites.

Improve information and access tohousing and services for people whodo not speak English or who faceother barriers to obtaining thisassistance.

Many people new to Indianapolis face uniquebarriers in their struggle to achieve self-sufficiency and to avoid homelessness. Tobetter assist them, a working group will beformed in 2003 to consider the strategieslisted below. To realize these strategies, thisgroup will concentrate on better coordinatingexisting services and programs.

Action steps include:

I m p ro v i n g coo rd i n a t i o n a n di n te g ra t i o n o f h o u s i n g , ca s emanagement, and other services withemployment services.

Work with funders and the IndianapolisPrivate Industry Council to strengthenhous ing and case managementcoordination requirements for proposalsthat target employment services to personswith multiple needs. Work towardovercoming the fragmentation of resourcesby requiring providers of employmentservices to demonstrate strong links tohousing and support services as a conditionof receiving service funding.

Coordinate employment-based casemanagers with case management teams.Work with the case managementcoordinating entity – known as a caremanagement organization – and other localstakeholders in 2003 to promote greateraccess to employment. Encourage low casemanager-to-client ratios to maximizeindividualized attention, especially forpeople with multiple needs.

Coordinate regular meetings and jointtraining with employers and providers ofemployment and other services to homelesspeople to determine how homeless persons,and persons vulnerable to becoming

Just as the Blueprint calls for better ways forhomeless and near-homeless people to accesshousing and services, it also recommends waysto enhance core services, such as employmentassistance and treatment for mental illnessesand addictions. Recommendations include:

Ensure a continuum of employmentservices to support single adults,youths, and families in reaching theirpotential.

To achieve the greatest possible independence,homeless people must have adequateoppor tuni t ies for meaningfu l work.Many homeless people are currently working,or are actively seeking work.37 But criminalrecords, mental illnesses, or addictions canmake it difficult for people to work inmainstream employment settings. And ashortfall exists in specialized work opportunities,such as supported employment and vocationalrehabilitation services – programs that haveproved successful in employing and servingpeople with multiple needs.

While Indianapolis appears to have a diverseand extensive group of workforce preparationproviders, more needs to be done to coordinateemployment-related assistance with otherservices that aid homeless people.38 ThisBlueprint calls for:

Increasing work opportunities forpeople with multiple barriers.

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2 7

Expand the availability of supportedemployment and vocational rehabilitationprograms, and train service providers onhow to better connect people to these

programs. Current estimates call forexpanding these programs to serve at leastanother 250 to 270 homeless individualswho have serious mental illnesses, physicaldisabilities, or chronic addictions.39 Effortswill be made to work with the state Divisionof Mental Health and Addictions, the stateOffice of Vocational Rehabilitation, the casemanagement system, and other keystakeholders to refine these estimates.

Expand and integrate employment servicesthat use a transitional employment modelto help individuals develop job skills andbuild upon a scattered work history.Examples include job clubs to move peoplefrom in-house work to supported employmentand mission-based business ventures thatemploy individuals in supportive, service-enriched environments.

S T R A T E G I E S f o r E n h a n c i n g S e r v i c e s

Despite reportingsignificantly higher

personalchallenges that

make employmentdifficult, poor

families that hadleft welfare but

received housingassistance had

higher employmentrates and incomes

than thosewithout it.

Sheila Zedlewski, "TheImportance of

Housing Benefits toWelfare Success,"

Brookings Institution,2002.

Designate a care management organization,an entity skilled in coordinating services forpersons with multiple needs. The CMOwould ensure that people are able to receiveappropriate care.

Build on existing programs that divertpersons with mental illness from entering thecriminal justice system. Establish a similarprogram for people with addictions as aprimary diagnosis.

Enhance relationships with providers oftreatment for mental illnesses and addictionsthrough clear memoranda of understandingor similar steps to ensure that the needs ofhomeless people are met. While a numberof local providers offer these treatmentservices, there is little overall coordinationof care.

Work with the Marion County Mental HealthAssociation and local treatment providersin 2004 to develop a plan for assembling acrisis response team. This team would respondquickly when those who have a mental illnessor an addiction experience an acute crisis.The crisis response team would work closelywith the case management team to assurethat individuals who are housed maintaintheir housing and are linked to appropriateservices, such as the residential stabilizationprograms described below. The crisisresponse team would be staffed withindividuals who have expertise in mentalillnesses and addictions.

Expand residential stabilization programsfor people in acute psychiatric crisis. Mentallyill homeless people having psychiatric crisesoften can be stabilized without the use ofexpensive inpatient psychiatric care orhospital emergency rooms. This Blueprintrecommends development of stabilizationcenters that can deliver cost-effective care ina homelike setting for homeless people.Individuals who are housed also could usesuch stabilization centers without losing theirpermanent housing. Research on the number

In general, homeless people need quickeraccess to integrated care for mental illness andsubstance abuse, as well as an improved arrayof services. Recommendations include:

Explore partnerships with local colleges tohelp individuals work toward degree andtraining programs that match their interests.

Explore development of suppor tededucation programs (similar in approachto supported employment) with educationalinstitutions.

Integrating educational and skillstraining programs for people seekingto attain higher-skilled and better-paying jobs. As the Blueprint's lead entity,CHIP will work with local employment programs,businesses, the Indianapolis Private IndustryCouncil, education institutions, and other keystakeholders to:



Ensure a continuumof appropriateemploymentservices to helpsingle adults,youths, and familiesreach their potentialfor economicindependence.

Enhance services forhomeless personswith mental illnessesand addictions.

Assist shelters andday service centersto meet the needs ofhomeless persons.

Improve educationalservices tohomeless childrenand youths.

Enhance legalservices.

S t ra t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce s

Enhance services for homeless peoplewith mental illnesses and addictions.

Mental health problems affect many homelesspeople. Local agencies and national estimatessuggest that perhaps 40 percent of homelessadults suffer from mental illness or addiction.

While some local homeless people receivetreatment for these problems, others do not.These treatment services are often fragmented.

In a recent survey of local homeless adults,about 20 percent of respondents reportedhaving serious mental illness or addictionproblems, but fewer than half said they receivedtreatment. And a recent report prepared forthe Blueprint noted that the availability ofaddiction treatment to homeless and near-homeless people is "low at best."40

People with mental illnesses or addictions oftenare not appropriate for care in congregatehomeless shelters. Many have behavioralproblems or medical needs that hinder theirability to live in large group settings. It isimportant to stabilize these individuals withappropriate housing and treatment services,both for their own well-being and to avoidcostly and inappropriate use of taxpayer-funded emergency services.

homeless, can be more immediately linkedto employment and skills training programsand other support services.

housing; and other professional services duringdaytime hours. Shelters often rely on the servicesprovided by day centers to aid in their residents'recovery.

Day centers also respond to the daytime needsof a significant number of homeless peoplewho do not reside in shelters. A 30-day surveyconducted in November–December 2001 foundthat half of the respondents at one local daycenter said they lived in public buildings,abandoned buildings, or other locations "onthe street."

Both homeless shelters and day centers aregrappling with signif icant demand.

Missions that serve men are frequently full andhave to provide sleeping room on mats on theirfloors. Family shelters routinely turn away manyfamilies for lack of room. One local day centerhad 20,000 visits from 2,400 homeless peopleduring a recent f ive-month per iod.

Indianapolis must do more to provide homelesspeople with shelter or other appropriatehousing. But experts and local service providersagree that simply providing more shelter bedswill not be the answer and that other stepsneed to be taken.

Indianapolis must do a better job of preventingpeople from becoming homeless. It must freeup space in the shelters by helping chronicallyhomeless people who drift from shelter to sheltermove into more appropriate, cost-effectivehousing. It must do more to find and househomeless people who live in dangerouscircumstances on the street. And it must stopturning away homeless families seeking shelter.


S t ra t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce sB L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i s

2 9

Improving the

shelter system

and access to

affordable

housing was

strongly

supported by

homeless

people.

CHIP will identify a housing specialist orspecialists in 2003 to work with casemanagers, landlords, shelters, and daycenters to seek out existing affordablehousing units, including those accessible topeople with disabilities, and to match themwith homeless people and people likely tobecome homeless. This specialist also will:

Provide training to agencies and programs

of units needed, potential stakeholders, andfunding sources will be initiated in 2004.

Explore ways to make treatment morereadily available by designating a singlepoint of entry into the mental health servicessystem or creating a special "carve out" tomake a distinct funding pool available forthe needs of homeless persons. Currently, theIndiana Division of Mental Health andAddictions identifies people in crisis as apriority population, along with people withchronic addictions or serious mental illnesses.Research conducted by DMHA indicates thatstatewide, about 43 percent of people withserious mental illnesses and 22 percent ofpeople with chronic addictions receivetreatment. One possible source of funds toaid homeless people is a $5 million poolthat DMHA has targeted to people withmental illnesses and addictions.

Assist shelters and day servicecenters to strategically address theimmediate needs of homeless people.

Emergency shelters and day service centersin Indianapolis provide an array of servicesto homeless people. They also act as entrypoints to other agencies and assistanceprograms.

Ensuring that shelters and day centers operateefficiently and effectively is an essential partof this plan for ending homelessness.

Shelters offer temporary housing, food, andother assistance to meet the basic needs ofhomeless people. Day centers offer hospitality;help in finding a job, emergency shelter or

Fulfilling these goals for temporary shelter willbe a challenge, particularly without thesupportive housing units and wet shelter calledfor in this plan. Possible short-term optionsinclude expanding space available throughWheeler Mission and its Care Center affiliateor engaging more congregations to participatein the Inter faith Hospitali ty Network.The working group also will develop longer-range strategies for providing shelter andhelping homeless people move quickly intoaffordable housing. And it will identify waysto better link day center patrons withappropriate housing or shelter, with a focus onassisting the large number of day center patronsliving on the street.

Day centers offer an ideal place to connectpeople living on the street with housing becauseso many of these homeless people make useof day center services. Along with shelters, daycenters will play an integral role in fulfillingthe Blueprint's housing strategy.

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sS t ra t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce s


After spending three years in the Army in the 1970s,Mark Ellison moved on to a successful career inretailing and in radio.

But drugs and alcohol sent him on a downward spiralthat left him homeless.

" I l o s t ca r s , c l o t h e s , a p a r t m e n t s , f a m i l yre lat ionships – you name it , " he recal led.

For years, he lived with friends, on the street or inhomeless shelters in Indianapolis and other cities.Despite periods of recovery, he repeatedly fell backinto drug and alcohol use.

"I prayed I would die," he said of those difficult years."I remember the pain, the feeling of hopelessness."

Ellison credits his ability to finally rise out ofaddiction to long-term recovery programs.

For nine months, he recovered at The Healing Placein Louisville, eventually becoming part of the staff.Then he continued his recovery in Indianapolis at tworesidential programs for veterans.

Addicts "need to re-learn how to live with others,"Ellison said of the need for long-term recoveryprograms.

"Alcohol and drug addiction is pretty isolating. Bythen, we're pretty antisocial. Long-term recoverygives us a chance to re-learn skills and make somechanges that actually stick."

Eventually, Ellison became a certified drug andalcohol counselor. And when the Hoosier VeteransAssistance Foundation began a long-term recoveryprogram for veterans, he became its assistantprogram director.

Continuing his progress, Ellison recently was marriedand has mended relationships with his otherrelatives.

His message to people who have never been addicted,he said, is that addiction "is a sickness. And peoplewho have it can recover."

CHIP will hire a consultant 2004 in to assistin developing recommendations forimproving the shelter and day center system,including an assessment of the need foradditional shelter beds. This consultant willwork with CHIP and with local serviceproviders to make recommendations fordeveloping a coordinated, “front-door” system


that work directly with homeless and near-homeless people. This training will be aimedat helping people in need better accessaffordable housing.

Work with the Information and ReferralNetwork to develop a database of housingavailable and affordable to homeless andnear-homeless people, and make thisinformation available to service providers.

In 2004, CHIP will convene a working groupof representatives from family shelters, men'smissions, and day centers to discussstrategies for providing appropriatetemporary shelter, with support services, toall who need that assistance during thewinter months, and for families who needshelter throughout the year.

Improve educational services tohomeless children and youths.

Homeless children and youths face manybarriers to attaining a sound education.Turnover rates in some Indianapolis PublicSchools are higher than 100 percent in a singleschool year. Challenges faced by homelesschildren include family mobility, transportationproblems, poor health, lack of adequate foodand clothing, and an inability to purchasebooks or other school supplies.

More must be done to assist Indianapolis PublicSchools, family shelters, family transitionalliving programs, and parents in addressingthe education needs of homeless children andyou ths . Recommendat ions inc lude:

Enhance legal services.

Legal help can be an important tool for aidinghomeless and near-homeless persons. Thosein need include individuals facing evictionor child support and custody issues, peoplewhose credit histories prevent them fromobtaining available housing, and others whohave been inappropriately denied publicbenefits and services. More must be done toeducate homeless and near-homeless peopleand social service providers about theimportance and availability of legal servicesand to improve identification of legal problemsbefore they become a crisis.

Currently, Indiana Legal Services Inc. operatesa Homeless Legal Project to educate peopleabout their legal rights, provide legalrepresentation on civil issues that interferewith a client's ability to achieve self-sufficiency,and educate shelter staff and other serviceproviders so they can make appropriatereferrals for legal services. The HomelessLegal staff provides help on a wide range ofcivil issues such as consumer law, divorcesand child custody, employment, housing, anddomestic violence. The staff also provideslimited homelessness prevention services.Unfortunately, eligibility guidelines aresometimes restrictive and limit the legalservices that can be provided. And currentfunding is inadequate to meet the need.

S t ra t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce sB L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i s

3 1

“21% of homeless

children repeat a

grade because of

frequent absence

from school,

compared to 5%

of other children.”

Better Homes Fund

Zachary Davis at a local homeless shelter

Partnering with other groups, such as IndySchool on Wheels and Bridges to Success,to consider providing homeless children andyouths wi th improved access totransportation, educational materials at nocost, and other needed services, as well astraining school personnel to identify studentswho are homeless.

Working with the Indiana Department ofEducation and Indianapolis Public Schoolsto consider adoption of a "one child, one

school, one year" policy to minimizedisruption in the education of homelesschildren and youths.

Providing supplemental educational supportthrough programs, such as Indy School onWheels, that work with children and youthsin shelters and transitional living programsto assist them with their homework.Coordinate these efforts with parents,providers of services to homeless people,and educators.

Connecting the IPS schools' HomelessOutreach Coordinator with the ClientTrackdata collection system to help track andserve homeless children and youths.

of family shelters or for taking other stepsto improve effectiveness and efficiency.

As additional affordable and supportivehousing is developed, CHIP will work withshelters and other stakeholders to establishagreed-upon benchmarks for reducing thenumber of shelter beds.


B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sS t ra t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce s S t r a t eg i e s f o r Enhanc ing Se rv i ce s


Expand the current system's capacity torespond to the full range of civil legal issuesaffecting people who are homeless orvulnerable to becoming homeless.

Expand the availability of legal services tohomeless and near-homeless people throughaggressive outreach activi t ies andcollaborative efforts with case managersand other service providers. Outreachservices currently are provided throughshelters and soup kitchens. Expanded effortsmight target faith-based organizations,neighborhood associations, and supportivehousing programs that help persons leavingcorrectional institutions.

Provide in-service training and ongoingupdates to social service providers regardingissues such as landlord-tenant and housinglaws, consumer rights, child custody,bankruptcy, public benefit determination,and employment.

Develop, with the assistance of the HeartlandPro Bono Council, a network of privateattorneys willing to provide free services.NN

Last spring, for the first time in years, Susan Alexanderbecame a homeowner.

She has come a long way from the days when she fled, withher daughter, from an abusive boyfriend and ended up atCoburn Place, a temporary housing program for domesticviolence victims.

Living there allowed her to find a job and establish goodcredit. She moved out to an apartment, then sucessfullyapplied to purchase a home through Habitat for Humanity.

“I’m excited and overwhelmed,” Alexander said shortlybefore moving into her new, three-bedroom home, whereher house payment is less than the $509 she formerlypaid in rent.

As she worked to become independent, the cost of rentalhousing posed a major obstacle.

Even though she received a subsidy to help cover her daycare costs, she earned just enough to cover otheressentials and pay $250 a month for rent, an amountCoburn would accept.

But for a similar price, she couldn't find a decentapartment. And waiting lists were long for a federally-subsidized housing programs.

She finally was able to move out because she learned abouta different subsidized day care program that would covermore of the cost of caring for her daughter. With theadditional money, she was able to pay more in rent untilshe moved into her new home.

As she looks toward a brighter future, Alexander is gratefulfor the many agencies that have helped her get on herfeet. But she worries about people in similar circumstanceswho have not been able to establish good credit – or toland jobs that pay as well as hers.

"I have friends that are only making $6 or $8 an hour," shesaid. "I really don't know what they're going to do to findaffordable housing."


In Indianapolis, separate systems exist to servespecific groups of homeless people, includingfamilies, veterans, survivors of domesticviolence, and youths. Improved efforts mustbe made to ensure that homeless people inneed can take advantage of all the benefitsoffered by these systems. Recommendationsinclude:

Coordinate service systems topromote family stability.

Implementation of Blueprint strategies willpromote family stability by better coordinatinghousing with employment and support services.Currently, many low-income families receivesupport through the Temporary Assistance forNeedy Families program (TANF). Thismainstream public aid program seeks tostabilize families through food stamps,Medicaid, employment training programs,case management, and cash assistance thatdoes not exceed $288 a month for a three-member family.

Despite this assistance, many of the city's mostvulnerable families lack affordable housing,thereby undermining the effectiveness ofservices. Only 15 to 18 percent of all MarionCounty families receiving TANF also receivea housing subsidy.41 In addition, MarionCounty TANF families who are working earnan average hourly wage of $7.62.42 Manyworking people who lack housing subsidiesspend significant portions of their incomes onhousing and childcare, leaving them in povertyand at risk for becoming homeless.As the fastest-growing group of homelesspeople, families must be connected withaffordable housing and support programs.43

As the lead entity for the Blueprint, CHIP andkey stakeholders will continue to identify waysto improve systems and organizations thatserve homeless and near-homeless families.Recommendations include:

Coordinate housing and servicedelivery for veterans.

On any given night, an estimated 16 percentof shelter residents and 28 percent of homelesspeople living on the street are veterans.45 Itis important that all resources serving veteransbe coordinated to help the community meetthe housing and service goals in this Blueprint.

The Veterans Affairs Medical Center and theVA Regional Office will play an importantrole in the delivery of medical services andvocational rehabilitation as Blueprintrecommendations are implemented. Muchcan be done to improve coordination ofservices for homeless veterans.

Strategies for Coordinating Services for Special Populations Strategies for Coordinating Services for Special Populations

3 3

The Parker family at a local homeless shelter

35,000 Marion

County families

are directly

affected by

domestic violence

each year. This

means that from

359 to 700

families every

year could become

homeless due to

domestic

violence.

Consider using TANF funds to providehousing subsidies to families. This use ofTANF funds has been successful in a numberof states, including New Jersey.44 As theBlueprint's lead entity, CHIP will work withthe Fami ly and Soc ia l Ser v icesAdministration and other key partners toexplore best practices and develop a planfor better coordinating TANF assistancewith housing.

Work with the Family and Social ServicesAdministration and other key stakeholdersto better serve families by coordinating andstrengthening case management, identifyinghousing needs, and connecting familieswith neighborhood-based homelessnessprevention assistance.

Partner with future Blueprint working groupsto improve coordination of systems thatconnect homeless families with shelter andmove them to housing as soon as possible(such as the "front door" model used inColumbus, Ohio).

Coordinate homelessness preventioninitiatives outlined in this Blueprint withother services that have direct impact onfamily stability.

S T R A T E G I E S f o r C o o r d i n a t i n gS e r v i c e s f o r S p e c i a l P o p u l a t i o n s

The Blueprint recommends the following:

Coordinate housing, shelter, andservices for survivors of domesticviolence.

Domestic violence is one of the leading causesof homelessness and poverty among women.Service providers estimate that 2 percent ofdomestic violence survivors seek shelter. Since35,000 Marion County families are directlyaffected by domestic violence each year, asmany as 700 local families every year couldbecome homeless due to domestic violence.46

Domestic violence may not be the primaryreason many women seek emergency aid.When women need food or shelter, thesebasic needs become a priority. However, itis important to assess shelter residents'experience with domestic violence so theymay be connected to services that go beyondmeeting their most basic needs. This Blueprintrecommends the following strategies tocoordinate housing and services for survivorsof family violence:


“The cheapest

apartment I found is

$400 for my family.

I just don’t know

how I can make it. I

felt so discouraged

when I researched

the cost for

apartments for my

family.”

–Mother in TANFfocus group


Coordinate servicesystems topromote familystability.

Coordinate housingand service deliveryfor veterans.

Coordinate housing,shelter, andservices forsurvivors ofdomestic violence.

Coordinate servicesfor youths andyoung adults.


Identify the Hoosier Veterans AssistanceFoundation as a key coordinator of servicesfor homeless veterans. The HVAF wouldtake referrals from other organizations,complete an assessment of veterans' needs,and mobilize action for delivering housingand services.

Collect information about veteran statuswhen service workers contact homeless ornear-homeless people. Include a questionon common intake forms to identify whetherprospective clients are veterans. Link thosewho are to appropriate services throughthe Hoosier Veterans Assistance Foundation.

Obtain support from the state courts, theIndiana Department of Correction, theIndiana Department of Veterans Affairs,and veterans service organizations toidentify veterans in Indiana's prisons andjails in an effort to prevent homelessnessand recidivism.

As the Blueprint's lead entity, CHIP willwork with the Domestic Violence Networkof Greater Indianapolis to organize trainingsessions for providers of services tohomeless people so they can betterunderstand and respond to the specialneeds of family violence survivors. Thistraining would address assessment fordomestic violence, safety planning withbattered women, the importance ofconfidentiality, and the increased level ofviolence and danger women face oncethey separate from their batterers.

Public housing managers, policy makers,and other housing stakeholders must beeducated about domestic violence, withthe goal of influencing housing policiesthat may contribute to homelessness – suchas when women and their children faceeviction because their batterers causedisruption or pose a threat to the safety ofother tenants.

Providers of the 211 system must ensurethat survivors displaced from their homesare immediately connected to the DomesticViolence Navigation Hub and are placedin shelter immediately.

As the Blueprint's lead entity, CHIP willassist the Domestic Violence Network toestablish an emergency shelter bedoverflow plan so survivors have immediateaccess to a safe environment when sheltersare full. CHIP and the Domestic ViolenceNetwork will explore the feasibility of usingClientTrack's bed-tracking feature to locateemergency shelter spaces for survivors andfamily members.

Coordinate services for youths andyoung adults.

While the Blueprint identifies strategies toprevent homelessness among young peoplewho have aged out of the foster care system,housing and services also must be providedto other young people living on their own.

Many homeless youths have run away fromtheir homes. Still others have been forced toleave their homes or have been abandoned

Incorporating recommendations from theMarion County Commission on Youth's"Unattached Street Youth" report to refine,if necessary, the number of units designatedto meet the housing needs of young people.

Working with the MCCOY Education TaskForce to identify an agency to act as ahome-school liaison. This liaison willcommunicate with Marion County schoolsand youth-ser v ing agencies anddisseminate up-to-date information aboutinitiatives or services available for homelessyouths.

Working with the MCCOY EmploymentTask Force to identify and replicatesuccessful employment programs for youths,such as the Walnut Creek EmploymentCollaborative. A pilot site for a youth-centered, full-service employment programwill be identified.

Providing young people lacking familysupport and moving out on their own withnecessary financial assistance, such asfunds for basic living allowances, workclothing, tools, computers, school fees, andhousing start-up costs such as movingexpenses, phone deposits, utility deposits,and household furnishings.

by their parents. Helping such young peopleaccess housing and services remains achallenge, since most homelessness-relatedservices, especially housing options, targetadults.

To be effective in moving youths towardindependence, housing must be madeavailable and must be connected to youth-centered transition services. The Blueprintrecommends designating 100 affordablehousing units, with support services, forhomeless youths during the next five years,in addition to 230 units for young peopleaging out of foster care.

The Blueprint also calls for:


3 5

Shawna Lee Mary Jane Petty

While many people their age still rely on their parents for emotionaland financial support, Mary Jane Petty and Shawna Lee mostlylook after themselves.

Both spent years in Indiana's foster care system. And when theyturned 18, they lost much of the help they received from fosterfamilies and caseworkers.

Petty, 18, and Lee, 20, received help from programs that temporarilypaid their rent. But even with that assistance, moving towardindependence has not been easy.

Petty said she has been diagnosed with thyroid cancer. WhileMedicaid covers her medical bills and she receives food stamps,she still has trouble making ends meet.

She is working on obtaining a general educational developmentcertificate and is looking for a job.

Like Petty, Lee spoke of difficult experiences in foster care.

Soon after leaving the system, she ran away and lived with friendsand on the street, moving more than 20 times in a single year.

:It was hard and dangerous," she said, recalling periods when sheabused alcohol and drugs and lived in a roach-infested crack house.

Finally resolving to change, she obtained a GED and got a part-time job. She hoped to find full-time work, however, because shedid not earn enough to cover her living expenses.

Former foster children are not the only young people struggling tolive on their own in Indianapolis.

At a Downtown coffee house, a gay 19-year-old spoke of thechallenges he had faced.

He said he moved out on his own at 16 because his mother abusedalcohol and they frequently argued. Since then, he has lived off andon with a much older man. While he has not always been comfortablethere, at least, he said, the home has been affordable.

Also staying with the older man was a 17-year-old.Both teenagers said they were involved in a work program thatassisted them in obtaining GEDs. They were still waiting for theirfirst paychecks, however. In the meantime, they said they madeends meet with visits to food pantries and financial help fromfriends.

"It's hard," said the 19-year-old, noting he had a painful toothachebut could not afford to visit a dentist.



i m p l e m e n t i n g t h e B l u e p r i n t ' srecommendations.

Developing "Good Neighbor" agreementsand appointing a community liaison.Supportive housing units created to servehomeless people must be assets toneighborhoods so that policymakers and thepublic understand the benefits of permanent,supportive housing. To facilitate these goals,the lead entity will develop written "goodneighbor" agreements that specify the waysin which supportive housing units and theirresidents will be "good neighbors." The leadentity also will appoint a community liaisonin 2003 that can meet with neighborhoodgroups to promote awareness and answerquestions about the needs of homeless andnear-homeless people.

Promoting greater effectiveness by helpingservice providers to conduct assessments oftheir current capacity to assist homelesspeople, as well as their need for additionalresources and for training and technicalassistance. The lead entity also will assistservice providers to increase their capacitiesto serve homeless and near-homeless peopleby providing information on forgingpartnerships, strengthening boards ofdirectors, and conducting in-service trainingfor staff, among other activities. And thelead entity will hold workshops on "bestpractices" and model programs, promoteuniform standards of care, and help serviceproviders set reasonable benchmarks ofsuccess.

Serving as a research and planning groupfor issues related to homelessness. The leadentity will help providers and policymakersby conducting periodic needs assessmentsto identify emerging trends and gaps in

services, conduct community planning andproject development as needed, and produceupdates on the Blueprint's progress towardending homelessness.

S t ra t eg i e s f o r Imp l emen t i ng t he B luepr in t and Ensur ing I t s E f f ec t i v ene s s


Bobby Powell spent time living on thecity’s streets

Credibility and visibility in the community.

A proven record of staff quality, advocacy,fundraising, and institutional accountability.

Established relationships with serviceproviders, funders, elected officials, lawenforcement agencies, and otherstakeholders.

A nonprofit – rather than governmental –entity to ensure that realization of theBlueprint's ambitious goals transcendselectoral cycles.

Strong board leadership, along with thatboard's wil l ingness to expand itsmembership and to be accountable for theBlueprint's implementation.

S T R A T E G I E S f o r I m p l e m e n t i n g t h e B l u e p r i n ta n d E n s u r i n g I t s E f f e c t i v e n e s s

Designating a lead entity

To ensure progress toward the goal of endinghomelessness in our community, a "leadentity" will coordinate implementation of theBlueprint and be accountable to thecommunity. This entity should includerepresentation from a wide range of agenciesand programs involved in endinghomelessness such as state and localgovernment, businesses, public housingofficials, health officials, educators,intermediaries for employment and socialservices, veterans, former homeless people,and others.

Some of the characteristics needed in alead entity are:

The functions of this lead entity will include:

Promoting awareness among a widevariety of potential stakeholders about the

Blueprint plan and issues related tohomelessness. The lead entity will conveneregular forums for community groups toexchange information and ideas for

The lead entity will convene regular forums for community groups toexchange information and ideas for implementing this Blueprint’srecommendations.

Advocating on behalf of homeless andnear -homeless peop le and theorganizations that serve them. The leadentity will identify public policies andorganizational practices that impedeprogress in ending homelessness and worktoward changing them.

Developing and managing a HomelessManagement Information System. Clientscannot be efficiently served, and theeffectiveness of services assessed, withoutthe collection and analysis of meaningfuldata. The lead entity will help serviceproviders to better coordinate andcommunicate by linking them to theHomeless Management Information Systemand work with the ClientTrack UserConsortium to help agencies increase theircapacities to implement that system. Thelead entity also will produce periodic reports

that show the aggregate number of peopleserved and the results achieved. These datawill help with community-wide planningefforts.

Assisting in identifying and obtainingadditional public and private resources.The lead entity will help mobilize thecommunity to contribute more funds towardending homelessness based on thisBlueprint's recommendations. In addition,it will consult with philanthropies and localgovernment about gaps in services andfunding priorities.

Assisting in recruiting volunteers for

agencies that serve homeless people.

Fostering greater coordination amongagencies that provide housing and supportservices.

Assessing the need for updating thisBlueprint and making recommendations fordoing so to the Housing Task Force.

Assessing other needs. The lead entity couldinvestigate other strategies for alleviatinghomelessness. These might include:

Including the need for providing adequatehousing and employment services tohomeless and near-homeless people inneighborhood and regional developmentplans.

Investigating how the issue of elder abuserelates to housing and homelessness.Reported cases of elder abuse areincreasing, and more than 1,900 caseswere reported in 2001 in central Indiana,according to CICOA The Access Network,which provides services to elderly anddisabled Hoosiers.

Investigating the risk of homelessness toelderly homeowners. Locally, about 2,500of these homeowners are at risk ofhomelessness, according to the federal

government, because they have low incomesand spend half or more of their incomeson housing.

Providing regular progress reports to theIndianapolis community regardingimplementation of the Blueprint. Using themeasurement indicators noted in Table 5and the timelines included in the Blueprint,the lead entity will report on a semiannualbasis to the Indianapolis Housing Task Forceconcerning the Blueprint's status. The leadentity also will respond quickly to requestsfrom appropriate public and private bodiesfor updates on the Blueprint's progress.


3 7

S t ra t eg i e s f o r Imp l emen t i ng t he B luepr in t and Ensur ing I t s E f f ec t i v ene s s

Responsibility for the implementation of the Blueprint shouldreside with CHIP.

Those involved in the Blueprint process whohave no ties to the Coalition for HomelessnessIntervention and Prevention have concludedthat responsibility for the implementation ofthe Blueprint should reside with CHIP becauseit already possesses the characteristics notedabove, along with the energy and resolve tofulfill the stated functions of the lead entity.This conclusion was reached after considerableanalysis and lengthy discussions with leadersof public and private organizations whosesupport will make or break the realization ofthe Blueprint's goals.

The members of CHIP's board of directors arekeenly aware of the vast new responsibilities– and challenges – that await them as leadersof the designated lead entity. They seemprepared to build on the extremely professionaland dedicated staff resources already in placeand to devote their own time and energy tosecuring the additional financialresources necessary to build CHIP'scapacity to serve as the lead entity.Perhaps most importantly, the membersof CHIP's board of directors and thecurrent staff all say they are preparedto be held accountable to the broadercommunity for the Blueprint's successfulimplementation.

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sS t ra t eg i e s f o r Imp l emen t i ng t he B luepr in t and Ensur ing i t s E f f ec t i v ene s s

Designate alead entity

Measurecommunitysuccess

Assemble aFunders’Council

Measuring community success

The lead entity, in cooperation withproviders of services to homeless people,will collect and analyze data useful fordetermining the city's progress inmeet ing i t s goals for endinghomelessness. These analyses mightmeasure progress in:

Measurement indicators and possibledata sources are included in Table 4.

Funders' Council

CHIP, as the lead entity, will provide

Helping homeless people move intohousing.

Preventing homeless people frombecoming home le s s aga in .

Reducing the costs of emergencymedical care or other crisis care forhomeless persons.

Goal Indicator Data Sources

Mov

ing

curr

entl

y ho

mel

ess

pers

ons

into

hou

sing

or s

helt

erPr

even

ting

hom

eless

ness

Reduce the number of peoplehomeless on any given day.

Reduce the number of peopleentering shelter who report recentrelease from prison.

Reduce the number of familiesturned away from shelter.

Reduce the number of teens leavingfoster care who become homeless.

Assess the number of peopleserved.

Assess the number of units madeaffordable.

Increase the number of TANFrecipients linked to housingassistance.

Reduce the number of arrests ofchronically homeless individuals forvagrancy or public intoxication.

Reduce the number ofhospitalizations of chronicallyhomeless persons.

Redu

cing

main

stre

am co

sts

- Intake demographic data compiled fromfamily shelters, men's missions, and women'sshelters that use ClientTrack.

- Shelter Survey / development of turn awaylog with ClientTrack.

- Out of Reach report.

- Lead entity data collection.- Gaps Analysis inventory.- Affordable unit benchmarks over the nextfive years.

- FSSA reports.

- Prison rosters.- Information from IPD.- Access and utilization rates of sober up station.

- Emergency room data.

- Homeless Street Count.- Outreach Teams.

- Intake data from family shelters, men'smissions, women's shelters, and youth dropin centers.- Data from youth-serving agencies, such asCasey Family Programs and MCCOY.


staff support to a council of public and privatefunders that will meet periodically to considerfunding needs related to this Blueprint. TheFunders' Council will be one vehicle formaking decisions from a more collective visionand within the larger context of the Blueprint.

This Funders' Council must take a proactiveapproach to the Blueprint strategy by issuingRequests for Proposals that identify both theprocess objectives and desired outcomes tobe attained by partnerships of providers.The lead entity can assist in developing theRFPs and in helping to evaluate proposals.

CHIP will provide advice and direction to theFunders' Council on issues affecting homelessand near-homeless people. It also will helpraise the resources necessary to meet thisBlueprint's goals and explore cost-effectiveways to reallocate existing resources.

Table 4. Measuring community success.

3 9

For years, Jesse Rollins was in and out of jail and hospitalemergency rooms.

Suffering from a serious mental illness, he heard imaginary voicesthat urged him to take action – sometimes, by hurting himselfor others. Medication often did not seem to help, and he did nottake it regularly.

"I couldn't deal with society," said Rollins, adding that he hadbeen in trouble with the law for car theft, breaking and entering,and using marijuana.

He said he had lived with relatives for most of his life and usuallysought emergency medical care when his illness seemed toworsen. He also was frequently arrested.

But Rollins has been to jail and the hospital much less oftensince he became involved in a community program aimed athelping mentally i l l people achieve stabil ity and avoidhomelessness.

The Action Coalition to Ensure Stability pays his rent, and anACES worker calls him daily to assess his condition and, ifneeded, get him in touch with medical professionals who canchange his medication or take other steps to prevent his mentalcondition from worsening.

Rollins said that because of that help, he no longer has auditoryhallucinations. And having his own place has made him feel morestable.

Recently, he has become involved in a program that will help himfind work.

"In the past, I'd get frustrated on the job and walk off," saidRollins, who hopes the help he receives through supportedemployment will prevent that from happening. He enjoys cookingand plans to attend a 12-week program for culinary training.

He said he does not want to receive federal disability paymentsa n d w o u l d m u c h p re fe r to p a y h i s o w n e x p e n s e s .

" In the future," he said, " I hope to f ind a good job."

While CHIP will have responsibility for leadingthe Blueprint's implementation, commitmentby the entire Indianapolis community toadvancing the goals of the Blueprint is vitalto the plan's success. The Blueprint will notsucceed – and the visionary goal of endinghomelessness in our community will notbecome a reality – unless the entire communitydevotes the requisite human, financial andpolitical resources to the cause.

Placing a new emphasis on housing first andhousing plus will require not only communitysupport but also changes in the delivery ofservices to our homeless and near-homelessneighbors. As the implementation of theBlueprint advances, service providers mustwork together to determine how they canmodify their services to further the goal ofpermanently ending homelessness for thepeople they serve. Success also will dependon attracting greater financial and humanresources and pursuing more cost-effectiveapproaches to delivering services. Those whoare called upon to provide financial supportmust be expected to ask, "How will this requestlead to ending homelessness for the peopleto be served?" and "How does this requestfit into the Blueprint?"

Most of all, success will require that communityleaders provide the energy and vision togalvanize support for the goal of endinghomelessness.

But the nagging question remains: "Can theIndianapol is communi ty real ly endhomelessness?" Those who have worked onthis Blueprint are absolutely convinced thathomelessness can, in fact, be ended for thosewho are ready, primarily by putting safe,decent, affordable – and appropriate –housing within reach of all of our neighbors. Setting our sights any lower – concluding,in essence, that some level of homelessnessis acceptable or inevitable – is unworthy ofthe caring community known as Indianapolis.

Conclusion: A Call to Action Conclusion: A Call to Action Conclusion: A Call to Action Conclusion: A Call to Action


C O N C L U S I O N : A C A L L T O A C T I O N

Time l i ne Time l i ne Time l i ne Time l i ne Time l i ne Time l i ne Time l i ne Time l i ne Time l i ne Time l i ne Time l i ne


Designate CHIP as Lead EntityReconfigure and build capacity of CHIP to implement Blueprint.Form key partnerships for oversight and technical assistance.

Implement Management Information SystemConnect remaining sites to ClientTrack.Train case managers and other staff to use HMIS.Identify measures for community progress.Develop standard reports.Collect aggregate information.

Establish Funders’ CouncilEstablish policies and procedures.Recruit participants.

Identify and Secure FundingIdentify sources of housing assistance and service funding.

Establish Housing Implementation GroupEstablish policies and protocols for implementation group.Identify key stakeholders and housing experts.

Identify Coordinating Entity(ies) for CaseManagementIdentify key stakeholders.Develop process for building systems of care approach.Release Request for Proposals to designate coordinating entity/entities.

Mobilize Community SupportPromote benefits of Blueprint strategies.Develop advocacy agenda.Meet with mainstream providers.Meet with faith community.Hire community liaison.

Building the Infrastructure: 2002–2003 Preliminary Timeline2 0 0 2 2 0 0 3

Qtr.2 Qtr. 3 Qtr. 4 Qtr. 1 Qtr. 2 Qtr. 3 Qtr.4

Prevention and Housing Activities: Preliminary 5-Year Timeline

Prevention – Neighborhood SitesFurther refine prevention strategy.Work with stakeholders and city.Hold community forums in high risk neighborhoods.Release RFP to manage sites.Implement homelessness prevention sites and issue rent assistance vouchers.Develop and implement service plan for families in affordable units.

Prevention – Youths Leaving FosterCareCoordinate housing and transition services plan.Finalize and implement housing plan for youths leaving foster care.Train care providers.

Prevention – Persons Leaving PrisonExplore replication of effective programs.Develop plan for service and housing implementation.Educate community about reintegration challenges.

Affordable Housing – CurrentlyHomelessPromote improved neighborhood relations.Produce affordable housing units.

2 0 0 2 2 0 0 3 2 0 0 4 2 0 0 5 2 0 0 6 2 0 0 7Q u a r t e r 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4

# # # #

# # # ##

# # # #

Implementation Period General Planning Community Relations Ongoing Activity

Affordable Housing Benchmark Implementation Period Prevention Benchmark General PlanningCommunity Relations Ongoing Activity

#

# # # # #

#

T h e B l u e p r i n t ’ sstrategies for endinghomelessness wil lrequire communitys u p p o r t , t h ec o m m i t m e n t o fresources, and thecommitment of time.

These two timelineshighlight some of themajor activities to belaunched during theinitial years of theplan.

Subsequent timelineswill be amended byCHIP as the Blueprintlead entity.

Qtr. 1 Jan–Mar

Qtr. 2 Apr–June

Qtr. 3 Jul–Sept

Qtr. 4 Oct–Dec

T i m e l i n e

4 1


E N D N O T E S

1 These data were compiled by the Coalitionfor Homelessness Intervention and Preventionin 2002 after contacting agencies andprograms that assist homeless people.The statistics cited by the mayor about theextent of local homelessness are from "TheStruggle to Stay Housed," a compilation ofthree studies conducted in 1999 and 2000for CHIP.

2 Local missions that serve homeless menreport that demand for services has increasedand that they were at or near capacitythroughout most of 2001 and 2002. And aNovember–December 2001 survey for CHIPindicated that 119 people seeking entranceto four shelters for women and families wereturned away for lack of room. That surveyalso indicated that, on average, respondentshad been homeless 2.5 times.

"The Struggle to Stay Housed," a 1999 studyfor CHIP (p. 23), found that homeless peopleinterviewed had been homeless an averageof 3.6 times. The report also indicated thatamong 223 homeless and near-homelesspeople interviewed at shelters, food pantriesand other emergency aid sites, 37.5 percentof homeless respondents had been homelesstwo or three times, another 12.5 percent fouror five times, and 23.2 percent six or moretimes (p. 8).

Page 23 of the same report indicates that theaverage current period of homelessness amonglocal homeless people surveyed was 2.2 years.

3 Information about supportive housing andits effectiveness in local communities is availableat the Corporation for Supportive Housing'sWeb site, www.csh.org.

4 See "Ending Chronic Homelessness," NewYork Times, March 13, 2002, p. A26, andthe Bush administration's budget for FY 2003,p. 179.

5 Information about vacant rental units canbe found in the city's 2000–2004 ConsolidatedPlan, pp. 3-18.

6 "A Status Repor t on Hunger andHomelessness in America's Cities 2001," issuedby the U.S. Conference of Mayors, indicatesannual increases of 10 percent or more inrequests for emergency food in 15 of the past16 years, and for emergency shelter in 14 ofthe past 16 years. These findings are containedin a chart following p. 111 of the mayors'report.

7 See note 2. Increased demand for emergencyfood is discussed throughout "The Struggle toStay Housed."

8 Vanderbilt University's Institute for PublicPolicy Studies has concluded, "Homelessfamilies with dependent children are the fastestgrowing segment of the homeless population."Th i s i n fo rma t ion i s ava i lab l e a thttp://www.vanderbilt.edu/VIPPS/CMHP/Public/public.html.

9 "The Struggle to Stay Housed" containsthese details about the local homelesspopulation.

10 These findings are summarized in "TheStruggle to Stay Housed," p. 18.

11 Information on deaths was provided toCHIP by the Indianapolis Police Department.

12 Information from "The Struggle to StayHoused," p. 21, about homeless people livingon the street suggests the multiple needs ofthis population. Compared to homeless peoplein shelters, homeless people on the street weremuch more likely to be homeless for longperiods, to report high levels of drinking anddrug use, to depend on handouts or gifts, tobe unemployed, and to work less if employed.

13 More information on this survey iscontained in note 2. Statistics regarding theprison system were contained in a report forCHIP compiled by consultant Carol Kramer.

14 See "The Struggle to Stay Housed," p. 8.

15 See "A Status Report on Hunger andHomelessness," p. 74.

16 More information is available from theU.S. Department of Housing and UrbanDevelopment athttp://170.97.67.13/offices/cpd/affordablehousing/index.cfm.

17 In "What Will It Take to End Homelessness?"(September 2001), a policy brief issued bythe Urban Institute, Martha Burt notes thathomelessness in America appears to haveincreased in the 1990s, that it primarily affectspeople with the lowest incomes, and that thedecline in the availability of housing affordableto this income group has exacerbated theproblem of homelessness. "If housing wereinexpensive," she observes, "or people couldearn enough to afford housing, very few

individuals would face homelessness." Thedecreased availability over the past 30 yearsof affordable housing, particularly for low-income renters, and the connection betweenthis scarcity of affordable housing andhomelessness, is discussed in CushingDolbeare, "Housing Policy: A GeneralConsideration," in Jim Baumohl (ed.),Homelessness In America, 1996.

18 This information is contained in the U.S.Depar tment of Housing and UrbanDevelopment's report, "Worst Case RentalHousing Needs in the Indianapolis MSA," p. 1.

19 This recommendation is contained in thetask force's report, "A Housing Strategy forIndianapolis," 1998.

20 Mangano's comments and a descriptionof Pathways to Housing, a "housing first"program in New York, are contained inChristina McCarroll, "Pathways to Housingthe Homeless," The Christian Science Monitor,May 1, 2002.

A "housing first" approach by Beyond Shelterin Los Angeles also has been effective inmoving families out of homeless. Morei n f o r m a t i o n i s a v a i l a b l e a thttp://www.beyondshelter.org/aaa_programs/housing_first.shtml.

21 These data were provided by SamTsemberis, executive director of Pathways toHousing, at the annual conference of theNational Alliance to End Homelessness in July2002.

Another study of the success of supportivehousing can be found in F. R. Lipton, "TheNew York-New York Agreement to HouseHomeless Mentally Ill Individuals: SummaryPlacement report," New York City HumanResources Administration, 1997.

Still other evidence is provided at theCorporation for Supportive Housing's Website, www.csh.org.

22 More details are available in "EndingHomelessness in Columbus," a November 2001report by the Community Shelter Board to theU.S. House of Representatives' Financial ServicesCommittee and HUD. It is available athttp://www.csb.org/What_s_New/HUD%20briefing.pdf.

23 The study, "Public Service Reductions


B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sE N D N O T E S

Associated with Placement of Homeless Personswith Severe Mental Illness in SupportiveHousing," is available in Housing Policy Debate(Vol. 13, Issue 1). It also is available athttp://www.fanniemaefoundation.org/programs/hpd/pdf/hpd_1301_culhane.pdf.Further information on the Connecticut studyis available on the Corporation for SupportiveHous ing's Web s i te , www.csh.org.

24 An analysis of addresses provided duringthe Nov. 15 - Dec. 15, 2001 survey conductedfor CHIP indicates this trend.

25 This information is drawn from "TheStruggle to Stay Housed," p. 32.

26 This information was compiled in a reportby Community Solutions Inc., which conductedthe focus groups.

27 These facts were contained in the November- December 2001 survey conducted for CHIP.

28 These findings were contained in the Kramerstudy.

29 This information was obtained from theMarion County office of the state Division ofFamily and Children.

30 Discussions during the Blueprint processindicated that many low-income people, andthe agencies that serve them, have difficultyfinding affordable housing units. "The Struggleto Stay Housed" (p. 31) also indicated thatrelatively few people surveyed received foodstamps and other public aid even though manylikely were eligible.

31 Project H.O.M.E. in Philadelphia has formedeffective alliances with local police andrecommended a similar approach during sitevisits to Indianapolis for the Blueprint planningprocess.

32 "The Struggle to Stay Housed," p. 22,indicates that nearly half of the homelesspeople living on the street had used alcoholseven or more times in the previous 30 days,a rate nearly eight times higher than homelesspeople living in shelters.

33-36 See "Ch i ldcare and TANFConsiderations for Homeless and Near-Homeless Families with Children: A Report forCHIP's Blueprint to End Homelessness"prepared by the Indiana Youth Institute.

37 "The Struggle to Stay Housed," p. 5,

indicates that about half of the homelesspeople interviewed reported having a joband working, on average, 30 hours aweek.

38 This information comes from "BetterPractices: The Challenge of Self-SufficientEmployment for Workers with MultipleBarriers," a 2001 report commissionedby CHIP and the Indianapolis PrivateIndustry Council.

39 These estimates come from theDepartment of Workforce Developmentand Midtown Community Mental HealthCenters.

40 This information was taken from theNovember - December 2001 survey anda report by consultant Chris Glancy.

41 - 42 This information comes from theIndiana Youth Institute's report for CHIP.

43 See note 8 about the growth ofhomelessness among families. "TheStruggle to Stay Housed" also containsinformation about the multiple challengesthat many of these families face.

44 According to Barbara Sard and T.Harrison, "The Increasing Use of TANFand State Matching Funds to ProvideHousing Assistance to Families Movingfrom Welfare to Work – 2001Supplement," available from the Centeron Budget and Policy Priori t ies.

45 See "The Struggle to Stay Housed"(p. 20).

46 According to the 1999 State of theStreets Address from the Marion CountyProsecutor.

4 3


A c k n o w l e d g m e n t s

The Blueprint to End Homelessness could not have been prepared without the support and guidance of many people andorganizations. Thanks are extended to 93 current and former homeless people and people vulnerable to becoming homeless

who provided comments in focus groups and interviews.Thanks also are due to the following people who attended meetings, submitted comments on drafts of the Blueprint, or

provided other help.

Shola AjiboyeVicki Alabbasi

Susan AlexanderSteve Allen

Stacey Lowe AlmgrenPam Altmeyer

Rick AlvisAmber AmesCraig AndlerEllen AnnalaDiane Arnold

Dean BabcockDee BaileyLori Baker

Hon. Jeb BardonWilliam Barton

Mike BattenJim Baumohl

Bill BickelRobert Bingham

Hon. Elwood BlackJennifer BoehmRod Bohannan

Hon. Rozelle BoydCharles BoyleLarry Bradley

Chuck BrandenburgJohn Brandon

George BrennerMary Brooks

Ben BrownKim BrownRick BrownSam Brown

Karen BudnickHerb Buffenbarger

Angela BurdenChar Burkett-Sims

Jerry BurrisDrew Buscareno

Alisa CahillVirginia CaineTim Campbell

John CannadayMoira CarlstedtHon. Julia Carson

Carol CaseVincent Cascella

Brian CaseyLori CassonMike Cervay

Tammy ChappellTim ChildressMoussa Cisse

Ken ColburnAlison ColeDale Collie

Rob ConnoleyBeatriz Consiglieri

Colleen CotterHon. Jack Cottey

Hon. William CrawfordHelene Cross

Dennis CulhaneCynthia CunninghamStacey Cunningham

Jim DaileyKenna Davis

C.L. DayHon. John DayAnn DeLaneyLeroy DinkinsJohn Dorgan

William DouglasRalph Dowe

Mary DownesMelissa Downton

Hon. Carl DrummerJenny Dubeansky

Ed DurkeeGina EckartTom ElliottDoug ElwellLynn Engel

Judith EricksonDuane Etienne

Marsha EubankMichael Evanchak

Dan EvansMegan FaussetMarti FeichterJ.T. Ferguson

Amanda FinneyMarie FlemingAnn FlemmingJack Flemming

Andy FogleAndy Ford

Katherine Fox-CunninghamAndy Fraizer

Mark FriedmanPat Gamble-Moore

Daniel Garcia-PedrosaDoris GarrettCara Garvey

Andy GaunceAlicia Gebhardt

Tyrell GilesChris Glancy

Mark GoodmanBob Goodrum

Bob GrandEleanor Granger

William GrayPage Grayson

Gene GreenHoward GreenKimberly GreenMatt GreenleeKenneth Griffin

Ken GuhrKelley Gulley

Rick GustafsonRon Gyure

Lena HackettCharles HaenleinFrank HagamanStephen Hakes

Dan HamerJohn HamiltonLisa Hamilton

Shannon HandJohn Hay Jr.Guy Hayes

Shirley HayesCharlene Hederick

Gordon HendryJane HenegarJim Hession

Bruce HetrickJanet Hiatt

Thomas A. HillDavid Hillman

Holly HintzThomas HoffJanice Holley

Traci HornHon. Karen HorsemanTracey Horth-Krueger

Eric HowardAnne HudsonTracy Hughes

Jason HutchensJill Igert

Beverly InmanBill Jackson

Sandy JeffersAnn JeffersonByron Jensen

Shannon JoergerLora Johnson

Ed JolliffeBonnie JonesDennis Jones

Paul JonesCheryl JusticeKirk KavanaughGreg Keesling

Jannette KeeslingMelina Kennedy

Hon. Joseph E. KernanSteve Kerr

Dr. Peter KimMindy KingFred Koss

Carol KramerKelly Krueckeberg

Andy KrullKristin LaEace

Steve LaubeDr. Tom Ledyard

Mary LefflerAlan Levin

Phil LeVletienAmaryllis Lewis

Larry LindleyMellissa LitmerJeannie Little

Maggie LondonStephanie Lowe-

SagebielBarbara Lucas

Tony MacklinThomas Major, Jr.

Duane MallonElizabeth MaloneMaureen ManierLarry ManzellaJeffrey Marble

Carolyn MarshallA.J. Mason

Joseph MasonBrent Matthews

Joe MatthewsMatt Maudlin

Sherry McCabeAida McCammon

Pat McCarrollToby McClamroch

Jim McClellandRussell McClure

Keith McCoyJackie McCracken

Mike McKassonMike McKenzie


B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sA c k n o w l e d g m e n t s

Doug McKnightOtha Meadows

Libby MillikenBrendan Miller

Erica MillerRandy Miller

Candice MitchellAmy MoehlmanLynne MoistnerDiane Monceski

Steve MoodyKimberly Moore and herclassmates from Butler

University.Mary Moore

Col. Donald W. Moreau (ret.)Heather MossJudy Muirhead

Hon. Mike MurphyBud Myers

Evelyn MyersAudrey Nannenga

Lou NanniJim Naremore

Hon. Scott NewmanKent NewtonLucinda NordDennis Norris

Katherine NovakDavid Nusink

Dick NussbaumHon. Jackie Nytes

Genny O'DonnellAnn O'Rielly

Peter O'ScanaillRobert Ohlemiller

Barry OlshinEdie Olson

Tom OrrAlex Otieno

Elaine M. PeckDavid Penalva

Jose PerezHon. Bart Peterson

Katie PfefferBrian Phillips

Barbara PoppeGerald PowersChuck PrestonPat Pritchett

Mary ProvenceCherrish Pryor

Irene Quiero-TajalliMaria Quiroz-Southwood

Portia RadfordAnthony Ratcliffe

Linda RelfordLetty RhodesLyman Rhodes

Donna Richardson

Rob RichardsonDonnie RobinetteDenise Rodriguez

Carol RogersJosephine RogersFlorence Roisman

Nan RomanDoug Roof

Jose RosarioPamela Royston

Steve RunyonNate RushPat Russ

Nancy RussellDonna Rutherford

John RyanPhyllis Ryan

Dana SandersDarnae ScalesSteve Schanke

Phil SchulerRick Schwartz

Dana ScottRebecca SeifertSherry Seiwert

Jennifer SessomsBill Shaw

Beverly ShawntaMarybeth Shinn

Hon. Frank ShortKevin ShortKirk Sichting

Wesley SimmsBren Simon

Todd SingletonIrene Snyder

Susan SolmonLianne Somerville

Maureen StapletonSharon Stark

Liz StrodtmanCheryl Sullivan

Pat SullivanAnn Sumner

Andy SwensonJeff Tabachi

Angelica TangmanJames Taylor

Kim TaylorCindy Thomas

Michelle ThomasPhilip Thomas

Steve ThomasDeborah Tooson-Harris

Marge TowellDeborah UmphreyJohnie Underwood

Don UpchurchOmari Vaden

Rebecca Van VoorhisSteve ViehwegSarge VisherJulie von Arx

David Vonnegut-GabovitchPat WachtelGerri Waggle

Michael WallaceLynn WalstonBetty Walton

Michael WarnerJohn Watson

David WeinschrottBob WelchPat Welch

Stu WernerMatt WhiteDeb Whitney

Sister Therese WhitsettCurt Wiley

Christina WilliamsDonna WilliamsJane Williams

Rolanda WilliamsKaren Willis

Betty WilsonKaren Witt

Gloria WoodsNoel Wyatt

Joseph WysingerWendy YoungTamara Zahn

Thanks also are due to the followingorganizations that supported the

Blueprint by allowing theirrepresentatives to participate in the

planning process or by providingother assistance.

Adroit SolutionsAdult and Child Community

Mental Health CenterAdult Probation

African CommunityInternational CenterAmerican United Life

Apartment Association ofIndiana

Barnes & ThornburgBeacon HouseBreaking Free

Browning InvestmentsBurton Apartments

Butler UniversityCare Center

Casey Family Programs

4 5


A c k n o w l e d g m e n t s

Catholic Social ServicesCenter for Community Change

Center for the HomelessCenter for Urban and Multicultural

EducationCenter Township Trustee

Central Indiana Community FoundationChristel DeHaan Family Foundation

CICOA The Access NetworkCity of Indianapolis

City Securities Corp.Coalition for Human Services Planning

Coalition of IntermediariesCoburn Place

Community Alliance of the Far EastsideCommunity Centers of Indianapolis

Community Organizations LegalAssistance Project

Community Shelter BoardCommunity SolutionsCompassion Center

Concord Center AssociationConcord Community Development Corp.

Cornerstone PropertiesCorporation for Supportive Housing

Crisis and Suicide HotlineDamien Center

Dayspring CenterDomestic Violence Network of Greater

IndianapolisDrug-Free Marion County

Eastern Star ChurchEastside Community Investments

Edna Martin Christian CenterFairbanks Hospital

Family Services AssociationFannie Mae Foundation

Fannie Mae Indiana Partnership OfficeFederal Home Loan Bank of Indianapolis

Fiscal Policy Studies InstituteGallahue Mental Health Services

Gennesaret Free ClinicGlancy AssociatesGleaners Food Bank

Good News MinistriesGoodwill Industries

Hawthorne Community CenterHealth and Hospital Corporation of

Marion CountyHealth Foundation of Greater

IndianapolisHealthnet

Hetrick CommunicationsHispanic Education Center

Holy Family ShelterHomeless Initiative Program

Hoosier Veterans Assistance FoundationHorizon House

Indianapolis Commission onAfrican-American Males

Indiana Behavioral Health ChoicesIndiana Department of Correction

Indiana Department of Veterans AffairsIndiana Family and Social Services

AdministrationIndiana Health Centers

Indiana Housing Finance AuthorityIndiana Legal Services

Indiana Office of Vocational RehabilitationIndiana University School of Law-Indianapolis

Indiana University School of Social WorkIndiana University-Purdue University

IndianapolisIndiana Youth Group

Indiana Youth InstituteIndianapolis Chamber of Commerce

Indianapolis Downtown Inc.Indianapolis Home Challenge Fund

Indianapolis Housing AgencyIndianapolis Neighborhood Housing Partnership

Indianapolis Police DepartmentIndianapolis Private Industry Council

Indianapolis Public SchoolsIndianapolis Urban Enterprise Association

Indianapolis Urban LeagueIndy School on Wheels

Information and Referral NetworkInterfaith Hospitality Network

International AfricaIrvington Congregations as Partners

Irwin Mortgage Corp.John H. Boner Community Center

John P. Craine HouseJulian CenterKeys to Work

Kramer and Co.Lewis and Kappes

Lighthouse MissionLilly Endowment

Local Initiatives Support CorporationMarion County Commission On Youth

Marion County Community CourtMarion County Health Department

Marion County Justice AgencyMarion County Probate Court

Marion County Prosecutor's OfficeMarion County Sheriff's Department

MBS AssociatesMental Health Association in Marion County

METRO ChurchMidtown Community Mental Health Center

National Alliance to End Homelessness

National City BankNational City Community Development

AssociationNina Mason Pulliam Charitable Trust

North Pointe BankNueva Vida United Methodist Church

Offender Aid and RestorationOffice of Mayor Bart PetersonOffice of U.S. Rep. Julia Carson

OICOutreach Inc.

Partners in Housing Development Corp.Pathway to Recovery

POLIS Research CenterProgress HouseProject H.O.M.E.

Riley Child Development CenterSalvation Army

Salvation Army Adult Rehabilitation CenterSchneider Corporation

Second HelpingsSecond Presbyterian ChurchShepherd Community Church

Shiloh Missionary Baptist ChurchSoutheast Neighborhood Development Inc.

Stopover Inc.Ten Point Coalition

U.S. Department of Housing and UrbanDevelopment

U.S. Department of Veterans AffairsUnited Way of Central Indiana

University of IndianapolisUrban League

Van Rooy PropertiesVincennes University - ATHS Campus

Volunteers of AmericaWestside Community Development Corp.

Wheeler Mission Ministries


211 SYSTEM – A program of Indiana 211 Partnership Inc. that seeksto create a statewide telephone-based information and referralsystem in Indiana through use of the "211" dialing code so thatHoosiers in need of human services have quick referrals to thoseservices and data is collected to assist communities in assessingneeds and allocating resources.

AFFORDABLE HOUSING – Generally defined by the U.S. Departmentof Housing and Urban Development as housing and utilities that costno more than 30 percent of a household's adjusted gross income.

AT RISK OF BECOMING HOMELESS – Being on the brink ofhomelessness, often because of having extremely low income andpaying too high a percentage of that income (typically 50 percentor more) on rent.

BEDS – Typically used to describe overnight sleeping capacity inshelters.

BRIEF INTENSIVE CASE MANAGEMENT - A service for homelesspeople who have temporary barriers to self-sufficiency and can liveindependently in community housing following a brief period ofintensive services.

CARE MANAGEMENT ORGANIZATION (CMO) – An entity responsiblefor developing a seamless system of care for individuals accessingservices. The CMO partners with other organizations to assure thatthe full range of appropriate services are available when needed. TheCMO is responsible for management and accountability of the servicedelivery system and assures implementation of identified "bestpractices."

CARVE OUT – A special set-aside of funding for a specific populationor service to assure that those most in need are prioritized forservices and support.

CASE MANAGER – A person who develops a working alliance withindividuals seeking services and engages them in identifying goalsand developing a plan for attaining greater self-sufficiency throughresource cultivation, linkages with service providers, advocacy forvital services, and providing direct services.

CASEY FAMILY PROGRAMS – A group that provides foster careand an array of other services for children and youths. Casey servicesinclude adoption, guardianship, kinship care (being cared for byextended family), and family reunification (reuniting children withbirth families). Casey also is committed to helping youths in fostercare make a successful transition to adulthood. As a direct serviceoperating foundation, Casey Family Programs does not make grants.

CHRONICALLY HOMELESS – Persons who remain homeless for longperiods – typically, months or years. They represent perhaps 15percent of the homeless population but use a large share of theservice system's resources.

CLIENTTRACK – A computerized data collection system establishedto create more case management and client follow-up amongproviders of services to homeless and near-homeless people.

B L U E P R I N T T O E N D H O M E L E S S N E S S I N I n d i a n a p o l i sG l o s s a r y

COALITION FOR HOMELESSNESS INTERVENTION AND PREVENTIONOF GREATER INDIANAPOLIS INC. (CHIP) – A nonprofit organizationthat provides information to an extensive network of provideragencies and others; acts as an information source on homelessnessand housing issues; collects information regarding the needs anddemographics of the homeless population, available resources, andexamples of effective self-sufficiency programs; acts as a partnerin community planning efforts related to the various service needsof homeless persons and those at risk of becoming homeless; assistsin resource development; and acts as a broker of partnerships amongvarious community planning efforts, working committees, andnetworking sessions.

COMMUNITY DEVELOPMENT BLOCK GRANT PROGRAM (CDBG) –A federal grant program administered by the U.S. Department ofHousing and Urban Development and by state and local governments.CDBG funds may be used in various ways to support communitydevelopment, including acquisition, construction, rehabilitation, andoperation of public facilities and housing.

COMMUNITY DEVELOPMENT CORPORATION (CDC) – A not-for-profit organization usually established by concerned citizens in aspecific neighborhood to engage in development activities, such ashome repair and rehabilitation, new home construction, and homerevitalization projects that will help rebuild the neighborhood.

CONSOLIDATED PLAN – A document written by a state or localgovernment and submitted annually to the U.S. Department ofHousing and Urban Development. It describes the housing needs ofthe low- and moderate- income residents of a jurisdiction, outlinesstrategies to meet these needs, and lists resources available toimplement the strategies.

CONTINUUM OF EMPLOYMENT SERVICES – The full range ofemployment services and opportunities provided to address themultiple needs of individuals seeking work.

CONTINUUM OF SERVICES – The full range of emergency, transition,and permanent housing and service resources typically used toserve homeless persons.

COORDINATION (OF SERVICES) – The effort to link persons toneeded services, track the progress of that linkage, and generallyfacilitate the provision of services.

CORPORATION FOR SUPPORTIVE HOUSING – A national financialand technical assistance intermediary dedicated to helping nonprofitorganizations develop and operate service-enriched permanenthousing for homeless and at-risk families and individuals with specialneeds, including mental illness, HIV/AIDS, and substance abuseissues.

DAY CENTERS – Agencies that provide case management,hospitality, and a range of other services to aid homeless peopleduring the day.

DISABILITY – A physical or mental impairment that substantiallylimits one or more major life activities, such as caring for oneself,speaking, walking, seeing, hearing, or learning.

4 7


G l o s s a r y

DOMESTIC VIOLENCE – Physical harm, bodily injury, assault, or theinfliction of fear of imminent physical harm among family or householdmembers.

DOMESTIC VIOLENCE NAVIGATION HUB – A project of the DomesticViolence Network that aims to ensure that local service providerscoordinate programs to better support survivors of domestic violenceand their families. It does this by being the principal point of entryinto support services for survivors and their families and by helpingthem access other services. The Navigation Hub also collectsinformation as the victim moves through the system and monitorsvictim outcomes to provide information on the effectiveness of theresponse system.

DOMESTIC VIOLENCE NETWORK – A partnership of communityorganizations committed to finding positive, creative solutions thatprevent and respond to domestic violence. The network advancesthese solutions through educational support, communitycollaborations, and public awareness projects and initiatives.

EMERGENCY HOUSING ASSISTANCE – One-time or very short-termassistance provided to address an immediate housing crisis, oftenfor people who are homeless or at imminent risk of becoming homeless.This assistance usually consists of emergency rent, mortgage, orutility payments to prevent loss of residence, motel vouchers, oremergency shelter.

EMERGENCY SHELTER – Any facility with overnight sleepingaccommodations, primarily to provide temporary shelter for homelesspeople.

EXTREMELY LOW-INCOME – Households with incomes no higher than30 percent of the median income for the area, as determined by theU.S. Department of Housing and Urban Development.

FAIR MARKET RENT (FMR) - An amount determined by the U.S.Department of Housing and Urban Development for a state, county,or urban area that defines maximum allowable rents for HUD-fundedsubsidy programs.

FAMILY INVESTMENT CENTERS – An effort by Mayor Bart Petersonto strengthen families. According to the Peterson Plan, familyinvestment centers are designed to provide one-time needsassessments, comprehensive family care plans, and coordinateddelivery of services.

FAMILY – A self-defined group of people who may live together on aregular basis and who have a close, long-term, committed relationshipand share responsibility for the common necessities of life.

FOOD STAMPS – Federally funded, state-administered program toprovide vouchers for the purchase of food for low-income households.

FOSTER CARE – In Indiana, foster care provides 24-hour care tochildren who can no longer remain in their homes due to the risk ofabuse or neglect, or due to behaviors which may result in danger tothemselves or others.

"FRONT DOOR" MODEL FOR FAMILY SHELTERS – An approach tocoordinating emergency care for homeless families that requiresthem to enter the system through a single entry point.

GOOD NEIGHBOR AGREEMENTS – Written agreements that specifythe ways in which supportive housing units and their residents willbe "good neighbors." Good neighbor agreements are good-faithefforts discussed and agreed upon to ensure a healthy coexistenceamong businesses, neighbors, and housing providers.

HEAD START AND EARLY HEAD START – Comprehensive childdevelopment programs that serve children from birth to age 5,pregnant women, and their families. They are child-focused programsand have the overall goal of increasing the school readiness of youngchildren in low-income families.

HOME – A program administered by the U.S. Department of Housingand Urban Development that provides grants for low-income housingthrough rental assistance, housing rehabilitation, and newconstruction.

HOMELESS FAMILY WITH CHILDREN – A family that includes atleast one homeless parent or guardian and one child under the ageof 18; a homeless pregnant woman; or a homeless person in theprocess of securing legal custody of a child under the age of 18.

HOMELESS PERSON – According to the U.S. Department of Housingand Urban Development, a homeless person is an individual who lacksa fixed, regular, and adequate night time residence or has a primarynight time residence that is a) a publicly supervised or privatelyoperated shelter designed to provide temporary l iv ingaccommodations (including welfare hotels, congregate shelters, andtransitional housing for the mentally ill); b) an institution thatprovides a temporary residence for individuals intended to beinstitutionalized; or c) a public or private place not designed for, orordinarily used as, a regular sleeping place for human beings.

HOMELESS MANAGEMENT INFORMATION SYSTEM (HMIS) – Acomputerized data collection system to collect information abouthomeless people. HUD requires that jurisdictions collect an array ofdata on homelessness, including unduplicated counts, use of services,and the effectiveness of the local homeless assistance system.Indianapol is has instituted Cl ientTrack as its HMIS.

HOMELESSNESS PREVENTION – An effort to assist individuals atrisk of becoming homeless to stabilize their housing situations andprovide supports necessary to help them maintain their housing.

HOOSIER VETERANS ASSISTANCE FOUNDATION – A not-for-profitorganization whose mission is to provide permanent, supportivehousing to Indiana's veterans and their families who are recoveringfrom homelessness and to provide them with the assistancenecessary to ensure successful independent living in the community.

HOUSEHOLD – An entity that includes all the people who occupy ahousing unit. A person living alone in a housing unit, or a group ofunrelated people sharing a housing unit - such as domestic partnersor roomers - is also counted as a household.



HOUSING FIRST – An approach to aiding homeless people thatemphasizes helping them move into housing they can afford as quicklyas possible.

HOUSING OPPORTUNITIES FOR PERSONS WITH AIDS (HOPWA) –A U.S. Department of Housing and Urban Development program that pays for housing and support services for people living with HIV/AIDSand their families.

HOUSING PLUS – A term used to describe "supportive housing" –the combination of permanent, affordable housing with appropriatecase management, mental health, or other services needed to helpa homeless or near-homeless person maintain housing and movetoward the greatest independence possible.

HOUSING SPECIALISTS – People who work with case managers,landlords, shelters, and day centers to seek out existing affordablehousing units, including those accessible to persons with disabilities,and to match them with homeless people and persons likely tobecome homeless. These specialists also provide information andreferral programs with information on available affordable housing.

HOUSING SUBSIDY – Funds typically paid from federal or othersources to help make a housing unit affordable to a low-incomehousehold.

HOUSING UNIT – An occupied or vacant house, apartment, or singleroom intended as separate living quarters.

HUD – The U.S. Department of Housing and Urban Development, afederal agency responsible for overseeing a variety of government-subsidized housing and related programs.

INDIANA DEPARTMENT OF CORRECTION – A state agencyresponsible for administering Indiana's prison system.

INDIANA DEPARTMENT OF VETERANS AFFAIRS – A state agencyresponsible for oversight and administration of certain veteransprograms.

INDIANA FAMILY AND SOCIAL SERVICES ADMINISTRATION - Astate agency that oversees a variety of human services for peoplewho are poor or elderly or have a mental illness, addiction, or otherdisability.

INDIANA HOUSING FINANCE AUTHORITY – A state-operated bankthat finances residential mortgages and the development of rentalhousing. IHFA is also a community development organization.

INDIANA YOUTH INSTITUTE – A nonprofit group that providestechnical assistance to agencies that serve the needs of youths.

INDIANAPOLIS HOUSING AGENCY – An entity that oversees anumber of publicly subsidized housing programs, including publichousing and the Section 8 program.

INDIANAPOLIS HOUSING TASK FORCE – A group convened byIndianapolis mayors to address the city's housing needs. Mayor BartPeterson designated a subcommittee of the Housing Task Force to

develop the Blueprint to End Homelessness.

INDIANAPOLIS PRIVATE INDUSTRY COUNCIL – A policy and planningbody for workforce development. As the Workforce Investment Boardfor Marion County, IPIC serves as the distribution source for fundsprovided through the federal Workforce Investment Act, the federallaw providing the largest source of funding for job-training programs. IPIC operates with more than 30 public, private, and philanthropicfunding sources for planning, administration and oversight of specificworkforce development programs.

INDIVIDUALS LEAVING INSTITUTIONAL SETTINGS – Persons releasedfrom prison, mental hospitals, foster care, or other institutions.Some are at high risk for becoming homeless if suitable housing isnot readily available and accessible.

INFORMATION AND REFERRAL – Programs that provide a varietyof information on available social services and related programs.

INTEGRATION (OF SERVICES) – An effort to provide social servicesin a manner that coordinates services to meet each person's needs.

INVOLUNTARY COMMITMENT – A process that allows the lawenforcement system to place persons temporarily or permanentlyin a mental health facility without their consent because they havea mental illness and are dangerous to themselves or others.

JOB CLUB – A means of encouraging people with various challengesto find jobs by getting together to share job leads and experiencesrelated to seeking employment.

LEAD ENTITY – The entity responsible for implementing the Blueprintto End Homelessness and being accountable to the community formoving the goals of the Blueprint forward. The Coalition forHomelessness Intervention and Prevention will become this leadentity.

LIFE SKILLS TRAINING – Assistance provided to help people learna variety of essential skills, such as money management, parenting,and maintaining successful relationships.

LONG-TERM HOMELESS PEOPLE – People who have experiencedlengthy or multiple episodes of homelessness and rely on emergencyshelters and other temporary arrangements for housing.

LONG-TERM INTENSIVE CASE MANAGEMENT – Case managementservices provided for months or even years to people who arehomeless due to chronic illness, disability, or other permanent barriersto self-sufficiency. Some chronically homeless people likely will need permanent supportive services to remain housed in the community.

LOW-INCOME HOUSEHOLD – A household earning no more than 80percent of a locality's median family income.

LOW INCOME HOUSING TAX CREDIT PROGRAM – A program thatprovides a formula allotment of federal income tax credits to states.These tax credits are distributed to nonprofit and for-profitdevelopers of, and investors in, low-income rental housing. Statesare given general guidelines and are free to establish their own

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preferences, restrictions, and procedures. The Indiana Housing FinanceAuthority allocates tax credits for the state of Indiana.

MENTAL HEALTH ASSOCIATION IN MARION COUNTY – A nonprofitgroup that provides education, advocacy, referrals, and other servicesto persons with mental i l lnesses and their fami l ies .

MCKINNEY-VENTO ACT – The primary federal law that targets federalfunds to homeless individuals and families. Programs eligible for thefunds include outreach, emergency food and shelter, transitional andpermanent housing, primary health care and mental health services,alcohol and drug abuse treatment, education, job training, andchildcare. There are nine titles under the McKinney - Vento Actadministered by several federal agencies, including the Departmentof Housing and Urban Development.

MEDICAID – A program jointly funded by the states and the federalgovernment that provides medical care to certain groups of poorpeople, including the elderly, children, welfare recipients and peoplewith disabilities.

MENTAL ILLNESS – A serious mental or emotional impairment thatsignificantly limits a person's ability to live independently.

NEAR-HOMELESS – A term that refers to persons or households inimminent danger of becoming homeless, often because they have lowincomes and pay more than half of those incomes for housing.

PEOPLE AT RISK OF HOMELESSNESS – See Near-Homeless.

PERMANENT HOUSING – Housing intended to be a home for as longas a person chooses to live there. In the supportive housing model,services are made available to residents but accepting those servicesis not required. Instead, residents are encouraged to accept theservices they need to fulfill the requirements of their leases.

PERSON WITH A DISABILITY – Someone with a physical, mental, oremotional impairment that is expected to be of continued andindefinite duration and that substantially impedes his or her abilityto live independently.

PREVENTIVE CASE MANAGEMENT – Case management designedfor people who are precariously housed and need brief support servicesto achieve housing stability.

PUBLIC HOUSING UNIT – A housing unit built with federal funds butowned and operated by a local public housing agency or authority.

SECTION 8 – A federal program typically operated by local housingauthorities or agencies that provides rental assistance to low-incomepersons. The Section 8 certificate program typically includes amaximum rent for a metropolitan area or county. Individuals receivingassistance under a certificate program must find a unit that complieswith rent guidelines, and they will pay 30 percent of their incomes forrent. Under the Section 8 voucher program, the local housing authoritydetermines a standard amount of rental assistance an individual orfamily receives. Both the Section 8 voucher and certificate programsare tenant-based programs, meaning the subsidy is specific to thetenant as opposed to the unit. Under the project-based assistance

program, a public housing authority may target up to 15 percent ofits Section 8 certificate allocation to specific housing projects,ensuring that the subsidy will remain with the properties.

SHELTER PLUS CARE – A national grant program administered bythe U.S. Department of Housing and Urban Development thatprovides rental assistance, linked with supportive services, tohomeless individuals who have disabilities (primarily serious mentalillnesses, chronic substance abuse, and disabilities resulting fromHIV/AIDS) and their families.

STREET HOMELESS ADULTS – Single adults who live on the streetsor in abandoned buildings. They often are reluctant to accept housingoptions such as emergency shelters or transitional housingprograms.

STRENGTHS MODEL – A model for providing service that focuseson persons' strengths rather than their weaknesses, relies onaggressive outreach, and attempts to build on client preferences.In the strengths model, the community is viewed as an oasis ofresources and the case manager - client relationship is consideredcrucial to accessing those resources.

SUBSIDIZED HOUSING – A housing unit that has a portion of its rentpaid with public funds or, during its development, was financed withpublic funds that will help keep the rent affordable to low-incomefamilies. It is estimated that there is only one such unit in the U.S. forevery five households that could qualify.

SUPPORTED EDUCATION PROGRAMS – Programs that providesupport services to people with disabilities or other barriers to successto help them be successful in mainstream educational programs.

SUPPORTED EMPLOYMENT PROGRAMS – Programs that providesupport services to people with disabilities or other challenges to helpthem succeed in the mainstream workforce.

SUPPORTIVE HOUSING - A type of housing that is both affordable toits residents and linked to mental health, employment assistance,and other support services to help residents live as independently aspossible.

TEMPORARY ASSISTANCE FOR NEEDY FAMILIES (TANF) – The mainfederally funded welfare program for families with children. Many detailsof the program are left to state government, but there are greatincentives to reduce caseloads and to move heads of households intoemployment.

TEMPORARY SHELTER – See Emergency Shelter.

TOWNSHIP TRUSTEES – Local government officials who provideassistance to meet certain immediate needs that typically relate toutilities, food, household supplies, housing, clothing, burials, andtraveler's aid.

TRANSITIONAL HOUSING – Living units that provide temporary shelter(usually for two years) to persons making the transition fromhomelessness to permanent housing.

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U.S. DEPARTMENT OF VETERANS AFFAIRS – A federal agency thatadministers a variety of medical and other assistance programs toveterans, including veterans who are homeless.

WAY TO WORK PROGRAM – A program administered by the FamilyServices Association to provide low- and no-interest auto loans toeligible low-income people.

WET SHELTER – A temporary shelter in which individuals who areintoxicated may stay if they are not disruptive. Wet shelter servicesmay also be linked with detoxification or other treatment services.

YOUTHS – People under the age of 18.

C o a l i t i o n f o r H o m e l e s s n e s s I n t e r v e n t i o n a n d P r e v e n t i o n9 6 0 E . W a s h i n g t o n S t r e e t , S u i t e 2 0 0 B • I n d i a n a p o l i s , I N 4 6 2 0 2 • 3 1 7. 6 3 0 . 0 8 5 3 • w w w . c h i p i n d y . o r g

Documents

BLUEPRINT TO END - Homeless & Reentry Helpers, Inc. · We received the final draft of the Blueprint during a detailed presentation at a public meeting of the Task Force, attended