Los Angeles Homeless Services Authority (LAHSA)

California law permits political subdivisions of the State to enter into joint powers agreements.^[90] The City of Los Angeles and the County of Los Angeles entered into a joint powers agreement (JPA) in 1993 to create the Los Angeles Homeless Services Authority (LAHSA).^[91] The JPA had an initial duration of five years and now continues from year to year unless terminated following procedures specified in the JPA. The purpose of LAHSA as stated in the JPA is to:

"Coordinate the operation of existing services for the homeless which the Parties currently operate separately and to design, fund, and operate other homeless and related social services to assist those in the community who are eligible for those services."

LAHSA is governed by a ten-member Commission composed of five commissioners appointed by the Los Angeles County Board of Supervisors and five appointed by the Mayor of Los Angeles and confirmed by the City Council. One of the city representatives must represent business interests in the downtown area.

LAHSA has an annual budget of more than five million dollars ($5,500,000). The city and county are each required to contribute $2.5 million a year in core funding to LAHSA exclusive of match. Most core funding is from the city’s and county’s homeless-related grant funds. Initial funding came from existing city and county programs.^[92] In 1995 LAHSA received one of HUD’s innovative comprehensive homeless initiative program grants parallel to the HUD BARI grant. In the most recent funding year HUD Supportive Housing and other grants contributed to the LAHSA budget.^[93]  Contributions may also include in-kind services, program services, and program money. The city and county may, but are not required, to contribute general fund monies to LAHSA. In addition to the core funding, each party is required to provide a 10% match (approximately $250,000) "[to enable] the Authority to initiate and carry out innovative programs to reduce the human and fiscal costs of homelessness in the City." The authority has a controller and treasurer and the JPA specifies how funds are to be managed.

LAHSA has an executive director and staff both on loan from existing city and county staff and additional personnel they hire. As of 1998 the Commission had twenty-three full-time administrative and four full-time program staff. The staff are organized into the following divisions: administrative, planning, program, contracts, and fiscal. Currently nine standing committees and two program-based committees handle specific aspects of the Commission’s work.^[94] A thirty-six member advisory board was formed in 1996 to advise the Commission on policy matters. Advisory board members are appointed from government agencies (Department of Health Services, Office of Education, Department of Public Social Services, and Community and Senior Services), non-profit service providers, advocates, and homeless and formerly homeless persons. Geographic representation is assured through the election of a representative from each of the County’s eight service planning areas.

LAHSA adopted a five-year Strategic Plan 1988-2002 on November 19, 1998. The Plan is a 56-page document. The stated goal of the strategic plan is to effectively address the problems of homelessness on a regional basis." The plan sets out four "strategic objectives."^[95] Sub-objectives are specified for each of the strategic objectives. Sub-objective 1.3.1 of the plan is to "Secure the resources necessary to sustain the system of services in accordance with the continuum-of- care-Plan." This section’s "projected outcome" is to show an increase in sources and amount of funding to Los Angeles County for homelessness. They "recognize that government funding alone cannot support the level of activity necessary to sustain a regional system of homeless services" and accordingly promote the idea of public/private partnerships.

Innovative approaches specified in the Innovative Comprehensive Homeless Initiative were prevention programs (a rental assistance program), emergency response programs (a Downtown High Tolerance Drop in Center, 24 Hour Bed Slots, and Public Toilets), and Transition Programs (5 Access Centers, Outreach Worker Teams, and a No Fail community Center). The most recent LAHSA semi-annual report contains quantitative outputs/outcomes for each approach. For example they report 43,518 persons have been placed in appropriate services or housing through the Access Centers.

Stated top priorities for the initiative in the most recent semi-annual report^[96] are to: (1) provide alternatives for homeless individuals which will reduce/eliminate encampment; (2) establish a high tolerance center which includes an active outreach component, (3) redesign the homeless delivery system to reflect new approaches; and (4) increase the number of dedicated transitional and permanent housing units.

Miami-Dade County Homeless Trust

The Miami-Dade County region has a population of 2.5 million people (less than half the Bay Area’s population). It contains one county and 30 municipalities (less than one-third the number of jurisdictions in the Bay Area).

In 1993 in response to a lawsuit brought by homeless people represented by the ACLU^[97] the region established a regional homeless trust to deal with homelessness on a regional basis.

Housing advocates with business support were able to obtain Florida State enabling legislation permitting them to charge a 1% "food and beverage" tax with all of the revenue devoted to homeless services in the first year and 85% of revenues in subsequent years.^[98] Dade County passed a municipal ordinance implementing the state enabling legislation.^[99] Businesses doing less than $400,000 business a year and towns already imposing a municipal resort tax (Miami Beach), hotels, and motels are exempt from the tax as well as some other specified sales.^[100] Currently the trust receives about $6.2 million a year from the food and beverage tax.^[101]

The Miami-Dade county homeless trust received a $15 million HUD innovative comprehensive homeless grant award in 1995. Thus, a region with less the population of the Bay Area received a little more than double the funding BARI received. They have used all of this funding.

The County prepared a Community Homeless Plan in 1993, Standards of Care  in 1997, and a Long Range Plan in 1998.^[102] The board, which governs the homeless trust, is engaged in a continuing long-range regional planning process. They are participating in development of a county-level "Human Service Alliance" with other social service agencies. This effort will produce a Human Services Master Plan.

The original 1993 Dade County Community Homeless Plan  was prepared by a Task Force chaired by two county commissioners, which met nine times in one month. It contains proposals for temporary, primary, and advanced care; community involvement and governance; and a short term (action plan). The plan set a goal of creating 1000 - 1500 new temporary care beds within three years and a minimum of 750 new primary care beds with services. The plan did not set a numerical target for advanced care.

The Miami-Dade County Homeless Trust received a $15,000,000 HUD Innovative Comprehensive Homeless Initiative grant in 1995. All of their initiative funds have now been expended, but final cumulative figures on the program’s outcome are not yet available. Objectives of their Innovative Comprehensive Homeless Initiative Program and quantitative measures they report on accomplishments through November, 1997 are described in the table below.
 

A 27-member board of trustees governs The Miami-Dade County Homeless Trust. The composition of the board is specified in the municipal ordinance that created the trust^[103] as follows:

• 7 members representing the civic and business community, selected by the Greater Miami Chamber of Commerce including:
• 1 representative of the downtown Miami business community;
• 1 representative from the judicial sector;
• 1 representative from the medical profession; and
• 1 representative of the neighborhood association in the area immediate impacted by the first homeless assistance center, or from the area most affected by homeless provider services;
• 1 member of the Dade County Public School Board or the Superintendent of Dade County Public Schools;
• The chairperson of the Board of County Commissioners Committee on Housing and the Homeless;
• 3 members of the Dade League of Cities;
• The City Manager of the City of Miami;
• 2 formerly homeless persons;
• 4 representatives of the Homeless Providers Forum;
• 1 representative of the academic or professional sector;
• 1 advocate, formerly homeless person, or provider selected by the South Florida Interfaith Coalition for the Homeless;
• 3 members of the Greater Miami Religious Leaders Coalition;
• 1 advocate for the homeless or 1 formerly homeless person selected by the Homeless Providers Forum;
• The President of the Miami Coalition for the Homeless;
• The District Administrator for the State of Florida Department of Health and Rehabilitative Services.

The Miami-Dade County Homeless Trust’s current Long Range Plan  was adopted in January, 1998.^[105] It is a fifteen page document (plus appendices). The long range identifies a number of issues and for each one specifies the concern, provides background, makes recommendations, and specifies action steps. The issues they identified are:

1. The Trust’s policy of funding new beds and services, as opposed to funding existing beds and services;
2. The impact of welfare reform on the continuum-of-care system;
3. Continuation of the U.S. HUD Model Cities Initiatives-funded programs beyond the third year of the grants;
4. Effectively communicating "the homeless story" to our general community;
5. An evaluation process for the Trust and the continuum of care;
6. The Trust’s policy on service restrictions/limitations; and
7. Addressing Gaps in the continuum-of-care.

Counties and cities in the Denver area have submitted a single joint $13,437,126 regional Homeless SuperNOFA to HUD with a single integrated continuum-of-care plan for the region.^[106] The SuperNOFA claims more than $25 million in leveraged funds.^[107] This plan grew out of a $5 million regional innovative homeless grant which the Metropolitan Denver Homeless Initiative (MDHI) received in 1995. MDHI has been a 501(c)(3) corporation since 1997. It has a small staff-apparently only a recently-hired executive director^[108] and one administrative assistant. Six counties (one of which, Denver, is a city and county) and seven cities including Denver.^[109]

The MDHI evolved from a year long planning process during 1994 facilitated by the National Civic League who helped the community develop a Governance Board, mission and vision statements, and the process for involving stakeholders in designing a strategic plan. Representatives of over 400 stakeholder organizations participated in development of a regional continuum-of-care plan for this region. The process by which MDHI developed themselves and their plan is quite similar to the process BARI followed.

Stakeholders originally identified seven Key Performance Indicators (KPIs) to be addressed within the strategic planning framework as follows:

1. Computerized Intake and Assessment;
2. Merging Public Support Systems;
3. Interjurisdictional Cooperation;
4. Case Management;
5. General Services;
6. Treatment Services;
7. Housing.

MDHI is governed by a thirty-nine member Governance Board intended to represent the 400 homeless stakeholders in the region. The board meets monthly to supervise and provide leadership to the activities being conducted by the committees to implement the MDHI continuum-of-care plan. The composition of the board is quite similar to the BARI RTF.^[110]

In addition to the stakeholders and the Governance Board MDHI has formed six sub-committees to implement tasks identified in the MDHI’s Action Plan.  These are:
 

MDHI has undertaken a census count of homeless individuals, families, and youth, using intake and assessment software developed through the MDHI CHIRP project, which is somewhat similar to BARI’s BAHA project.^[111] This census was undertaken jointly with the State of Colorado. In February, 1999 they did a similar "winter survey." Results of these studies were not yet available in June, 1999.

MDHI has a Five Point Strategic Plan for Years 1995 - 2000. Stated key purposes of this plan are to facilitate the development, implementation and evaluation of a coordinated self-sufficiency system for persons who are homeless or at risk of homelessness; (2) to promote interjurisdictional cooperation/collaboration between public and private sectors; and (3) to sponsor, collect, and distribute ongoing research on statistical and demographic information regarding the homeless, including gaps in resources, meeting consumer needs, effectiveness of service delivery, and changes in homeless profiles. MDHI’s Strategic Plan goals are described in MDHI’s June, 1999 SuperNOFA to HUD. The stated MDHI strategic plan goals are to:

1. Further refine and develop the Governance Board organizational and operating structure to implement the MDHI Strategic Plan;
2. Facilitate the development, implementation, and evaluation of a coordinated self-sufficiency system throughout the six county Denver Metropolitan area for persons who are homeless or at risk of homelessness;
3. Promote interjurisdictional cooperation/collaboration between public and private sectors;
4. Develop the capacity of MDHI to serve as a broker in the collection and distribution of funding to agencies providing housing and services to the homeless;
5. Sponsor, collect, and distribute on-going research on statistical and demographic information regarding the homeless, including gaps in resources, meeting consumer needs, effectiveness of service delivery, and changes in homeless profiles.

The MDHI Continuum of Care has seven "components" which they describe as follows:

1. Mobile outreach teams and street outreach workers;
2. Drop-in centers;
3. Intake/assessment, case management, and supportive services;
4. Prevention;
5. Emergency shelter and services;
6. Transitional housing and services;
7. Permanent housing and services;
8. Maximum personal independence without reliance on the homeless system.

A Regional Coalition for Housing (ARCH)

Seven cities and one county on the East Side of Seattle, Washington^[113] entered into an interlocational agreement in 1993 to form a coalition to fund housing, including housing for homeless people throughout their region. The coalition is named "A Regional Coalition for Housing" (ARCH).^[114] Funding from the eight jurisdictions is pooled and allocated semi-annually through an RFP process. ARCH has allocated more than $3 million in local funds towards 428 units and 43 beds in 19 projects. These projects include $851,750 in support for 42 units of homeless/transitional housing through fall, 1998.^[115] ARCH is currently aiming at baseline goal of $1 million a year to allocate. In April, 1999 ARCH was named the winner of the 1999 Housing and Urban Development Secretary’s Opportunity and Empowerment Award, presented jointly by HUD and the American Planning Association (APA).^[116]

ARCH has established a trust fund. CDBG, general fund, and some land sale proceeds are paid into the fund.^[117] The sources and amounts of funding available in any given year vary. Total contributions to the fund have averaged about $3,000,000 a year. Funds from the trust can be spent anywhere in within the region covered by the participating jurisdictions; it is not earmarked for use within the contributing jurisdiction.

ARCH issues RFPs - generally two RFP rounds a year. A typical funding round allocates approximately $1 million. ARCH develops affordable housing policy for the region and makes recommendations concerning how available funds are to be allocated. RFPs state factors that ARCH will consider in making funding decisions. Illustrative criteria include how well the proposal meets the needs of low income households and how well it addresses targeted housing needs.

Applications are screened by staff for completeness and then go to a Citizens’ Advisory Board (CAB). The CAB prioritizes applications and makes funding recommendations. Final funding decisions are forwarded to the Executive Board of ARCH consisting of representatives from each participating jurisdiction (usually the city manager or assistant city manager), who in turn forward the recommendations to City Councils. Council approval is required before a funding allocation for use within a jurisdiction is made. Staff from King County and one of the participating cities staff the RFP process.

Funds may be made as either loans or grants. In the case of loan money the trust fund operates as a revolving fund which is replenished as the loan proceeds are paid back. Public housing authorities and nonprofit organizations as well as private for-profit organizations and public development authorities can compete for the funds.

Eligible activities are primarily related to costs associated with the development of affordable housing: land acquisition, pre-development costs, site improvements, new construction costs, and off-site utility and other costs. Funds may be used for direct tenant assistance and to subsidize rents in mixed-income projects.