PUBLIC HOUSING

The City of St. Louis is striving to modernize it's public housing. Within the last several years efforts have been made to rehabilitate or reconstruct public housing complexes that have been plagued by time, neglect, and a lack of resources.

The St. Louis Housing Authority (SLHA) is funded by the U.S. Department of Housing & Urban Development (HUD), and is governed by a seven member board of commissioners (five of whom are appointed by the Mayor and two who are elected by the tenants). The SLHA owns and operates 42 public housing developments, and administers several assisted housing programs including: Section 8 rental vouchers, rental certificates and moderate rehabilitation units.

The public housing inventory consists of 6,769 units (which includes 460 still standing units that have been deprogrammed) found in the 42 housing complexes throughout the City of St. Louis, but concentrated in large part on the northern and southern periphery of the Central Business District. Currently 4,558 units are occupied, while 2,211 units are vacant due to rehabilitation and modernization efforts. The majority of the vacant habitable units are in elderly developments, the result of a decreasing elderly population, coupled with competition from other housing providers that are able to provide more amenities and services for the elderly.

Currently the Housing Authority has approximately 10,379 residents. Of this total number, African Americans represent approximately 97% of the population, about 10,116 residents. There are approximately 235 white residents which, with those listed as others, make up the remaining 3% of the total housing development population.

The public housing population includes 4,849 children (ages 0 to 17) representing 47% of the total population, 3,840 adults (ages 18 to 61) representing 37%, and 1,690 elderly (ages 62 and older) which represents 16% of the housing population. The population also includes approximately 1,492 (14%) persons with disabilities.

The Housing Authority works with Resident Management Corporations at Carr Square Village and at Cochran and with the Tenant Affairs Boards of the other public housing developments. A high degree of demand and turn-over requires the SLHA to restore and lease more than 1,100 units annually.

The Authority has a modernization program schedule that runs through 1997. It estimates that within the next 3-5 years the overall population will increase by 1,600 additional families as new and renovated units become available.

The demand for housing is a continuing issue for the City of St. Louis. Data provided by HUD from the 1990 census indicates that nearly 1 out of every 3 (34%) city households lacks adequate housing. This is a problem that includes housing expenses (including utilities) that are over 30% of household income, overcrowding in a unit (more than one person per room), and a lack of plumbing, kitchen facilities or other substandard conditions. The need for larger family units (3 and more bedrooms) has been identified as a priority need due to the number of larger families within the very-low and low income minority population. The need is evidenced by the data shown in Table 15 Housing Authority Waiting List. Roughly 44% of the waiting list population is in need of two bedroom units, while three bedroom units are necessary for 35% of the population. Approximately 17% of the waiting list population is in need of four bedroom units. Currently the Housing Authority list has over 17,700 applicants.

There are 4,558 households within Public Housing units. Of that total approximately 29%, or 1,337 households have an average income between $5,000 and $5,999 and represent approximately 46% of those persons/families living in one bedroom units. Approximately 67% of those persons represented as heads of household pay between $0 and $150.00 for rent. Table 16 describes the household incomes by housing type for public housing tenants. Table 17 represents the income guidelines established by HUD for the St. Louis Metropolitan Statistical Area.

The Housing Authority is servicing an additional 4,625 households (a total population of 13,497) with Section 8 certificates and vouchers. This population includes 7,530 children between the ages of 0 and 17, 5,967 adults between the ages of 18 and 61, and 565 elderly persons 62 and older.

The St. Louis Housing Authority administers 741 Section 8 vouchers of which 668 have been leased (resident has found a rental unit) or issued (resident has received the voucher but has not found a rental unit); 3,495 Section 8 certificates of which 3,356 have been leased or issued; and, 733 moderate rehabilitation units of which 630 have been leased or issued.

There is high demand for additional rental vouchers and rental certificates in the St. Louis area. The Housing Authority recently applied for an additional 202 rental vouchers and rental certificates in order to assist those families who lack adequate housing.

The St. Louis Housing Authority is developing plans to improve the security of the developments by hiring security guards and installing additional camera systems. The Authority will use contractors to assist in the areas of marketing, maintenance and other needed services. The estimated cost of maintenance is $3 million dollars.

Data provided by HUD estimates 42,530 households, approximately a quarter of the City's households, have incomes that fall at 30% or less than the regional median family income. The St. Louis Median Family Income for 1994 is $44,600.

NOTE: Table references above to "very low income" and to "low income" correspond to Block Grant references to "low" and "moderate" income respectively.

SOURCE: Memorandum dated April 20,1994 from U.S. Department of Housing and Urban Development.

Management improvement costs of $654,264 have been included in total estimate which includes $459,264 for 24-hour security guard coverage at Blumeyer Elderly (2 years); $135,000 for Human Services Coordinator (3 years) at Blumeyer disabled-only building to be designated; $40,000 for occupancy consultant; and $20,000 for additional housing manager training.

Source: St. Louis Public Housing Authority - Vacancy Reduction Program Application prepared July 15, 1994.

Modernization Efforts

Over the last year, the St. Louis Housing Authority has been aggressive in working to bring on-line long-standing vacant units. The goal is to address those units that have not been occupied in years. In order to accomplish this goal, the SLHA has identified a need for additional maintenance personnel in order to renovate vacant units and reduce the number of days on unit turnaround.

The St. Louis Housing Authority has recently received funding for a Vacancy Reduction Program. This program includes funding for development-wide improvements as well as repairs and upgrading. The $3.7 million will allow the SLHA to reduce the number of vacant units. As outlined in Table 18, the SLHA will be making repairs to 369 vacant units at an average cost of $8000 per unit.

Modernization support has been sought for approximately 1,158 of the total vacant units. Demolition has been approved for the 460 deprogrammed units.

Public Housing Resident Initiatives

The St. Louis Housing Authority supports resident initiatives through resident participation, advocating home ownership, self-sufficiency, the elimination of drugs in public housing and economic development. The Authority has also instituted measures to comply with Section 3 of the Housing and Urban Development Act of 1968. Section 3 promotes opportunities for job training, employment and resident-owned businesses for low-income persons. The SLHA is not only providing jobs and job training opportunities for the residents of public housing, but has also incorporated the provisions of Section 3 within its solicitation documents. This requires that contractors and their sub-contractors who conduct business with the SLHA must implement a Section 3 plan for hiring and training residents of public housing. The St. Louis Board of Commissioners have passed several resolutions supporting programs which accomplish resident initiative goals.

The Housing Authority works to fulfill resident initiative goals through programs which include: leadership training for tenant associations; the involvement of residents in the development of the Comprehensive Modernization Grant Five-Year Plan; implementation of the Drug Elimination Program; the HOPE grants for home ownership; and the establishment of a Resident Trainee Program with placement at its completion.

In June of 1993, the Housing Authority implemented the Family Self-Sufficiency program for Section 8 participants. The goals include stabilizing the family's environment by encouraging residents to pursue job-training opportunities, educational opportunities or employment. The objective is at the end of a five year program, to have the family benefit from either money paid into an escrow account, collected from increases in income during the five year period, or a college degree.

Three resident groups are participating in home ownership programs: Euclid Plaza, South Broadway, and Carr Square. There are two Resident Management Corporations (RMC) that manage two housing developments, Cochran and Carr Square.

The Blumeyer Tenant Affairs Board (TAB) has successfully used funds from a technical assistance grant to improve their understanding of public housing management and better relations with the Housing Authority, business community, and residents. The residents participate in a training program conducted by a housing management training firm, while the Blumeyer Tenant Board participates in the day-to-day operations of the complex. This training has allowed residents to establish a newspaper, youth program, job program and resident training.

The SLHA has also requested a $5 million grant directed towards upgrading the residential environment, and a $2 million dollar Family and Youth Investment Center Grant to focus on job opportunities training for residents.

Public Housing Improvements

The St. Louis Housing Authority's strategy to improve general operations involves a comprehensive training program. The program consists of contracting with a professional Housing Management Company to train the field and office staff on day-to-day procedures. The goal is to make site managers more accountable for the day-to-day operations by using a project based budget management system which would allow managers to apply needed resources in problem areas. In addition, the staff will use computerized reports so that problems can be identified early. Communication will be improved between the Central Office and field offices by the use of Electronic Mail.

The SLHA is committed to reducing the turnaround time for vacant units. This objective has been aggressively pursued during the past three years. Currently, SLHA is renovating non-longstanding vacant units for turnaround in less than 25 days and is making an effort to further reduce that time.

Blumeyer Elderly is a 588 unit development in two high-rise towers with a mixed population of both elderly and non-elderly disabled residents. The Authority has proposed development-specific management improvements at Blumeyer Elderly to include the designation of one building solely for elderly and the other for the disabled. This change would improve assistance for the disabled community by providing for the creation of a Human Services Coordinator position over the next three years.

Comprehensive Grant Program

In FY 93 the St. Louis Housing Authority received $23,512,549 in Comprehensive Grant funds. Of that total award, the Housing Authority was expended $2,940,389 and obligated $6,327,393 through the end of June 30, 1994. Total management improvement costs have been estimated at $1,238,400 which includes Housing management, Public Housing Authority-wide improvements and training.

Table 19 describes the projects being undertaken with this Grant:

In FY 92 the Housing Authority identified 17 housing developments that needed to come into compliance with Section 504 Handicap Accessibility Requirements. At that time, 43 handicap units had been provided, with funds designated for an additional 32 units. A total of 473 units must comply with 504 handicap accessibility. Fixing the remaining 398 units to meet these requirements has been estimated to cost $171,084.

The Housing Authority continues to use Comprehensive Modernization Grant funds for the modernization of all its developments. The agency estimates that over a five-year period it will have expended in excess of $100 million dollars. The agency's total modernization requirements exceed $200 million.

Meeting the needs for improved public housing is a priority for the City of St. Louis. During the past year the Authority has taken steps toward modernization with emphasis on landscaping, elevator upgrades, and additional security surveillance. In addition to physical improvements the SLHA is continuing support of its residents through resident initiatives that include, management training, resident job training, educational opportunities, family self-sufficiency efforts, and special programs such as Drug Elimination.

The following recommendations are designed to continue the pattern of upgrading all aspects of the public housing community:

a) Provide additional rental vouchers and rental certificates.

The supply of Section 8 vouchers and certificates depends upon the Federal Budget. Given the large unmet demands, the Authority is prepared to administer additional allocations, requiring that the program must be run in a responsible manner and in compliance with Federal guidelines.

b) Continue the Drug Elimination Program which provides programs for the prevention and treatment of drug abuse and support for additional security and equipment.

Finding improved ways to meet the security and safety needs of residents is of fundamental importance. This program is an important component.

c) Obtain additional Comprehensive Modernization Grant support for on-time completion of improvements at current developments.

The SLHA has identified many developments in need of site improvements, elevator upgrade construction, lead base paint abatement, exterior and interior lighting and related activities. The Authority must combine additional financing support with the necessary management skills to ensure the delivery of these improvements on schedule.

d) Support management improvements at Blumeyer Elderly facilities.

The mixed population of both elderly and non-elderly disabled residents does not satisfy the needs of either group. Designation of separate housing would allow for more effective social service assistance. This challenge needs to be addressed throughout the Authority's elderly complexes.

e) Provide funding for additional maintenance personnel to reduce unit turnaround time.

The St. Louis Housing Authority has placed an emphasis on improving their operations performance. Reducing unit turnaround time will enable the Authority to respond more readily for those in need. The goal should be to clean, repair, paint and lease vacant units as rapidly as large property management companies in the private sector.

The Public Housing Authority receives financial support from HUD on both an entitlement and a competitive basis. The Comprehensive Grant, the Demonstration Program, Section 8 vouchers and certificates and basic operational support are all important elements.

HOUSING FOR PERSONS WITH DISABILITIES

According to the 1990 Census, 11% of St. Louis City's 396,686 residents are living with a disability. The needs are varied among the population of people with disabilities. The primary need is for affordable, accessible housing. In addition, some people with disabilities need supportive services which allow them to live independently. Persons with both physical and mental disabilities have experienced an expansion of housing opportunities in recent years. Those opportunities include subsidized public housing, Section 8 units, group homes, and non-subsidized units. Unfortunately the need for such housing has also increased. Persons with mental retardation, developmental disabilities, mental illness, and physical disabilities all require a continuum of options that ranges from institutional to completely independent living. This diversity of need calls for a diversity in housing settings. The variety of housing types in demand by persons with disabilities is very great. Also in great demand is the opportunity for more community integrated independent living. Priority for housing choice for disabled City residents was a salient issue during the public involvement process.

Mental Retardation and Developmental Disabilities

Currently a comprehensive network of services is offered to persons with Mental Retardation and Developmental Disabilities (MR/DD) in the City of St. Louis. The St. Louis Regional Center is the coordinator of services needed by MR/DD clients in St. Louis City. Their Placement Program refers consumers to either St. Louis Developmental Disabilities Treatment Centers, Bellefontaine Habilitation Center, or other appropriate providers contracted with the Department of Mental Health. These facilities provide housing in both group home settings as well as placement services throughout the community. Consumers are placed in accordance with their skills and abilities in a variety of housing options ranging from nursing home facilities to foster homes. In addition to these State facilities, many agencies in the City also provide supportive services. These services include emergency shelter, home management training, community integration, and housing development strategies. Among these service organizations is the St. Louis Association for Retarded Citizens, St. Louis Mental Health Center, and Life Skills Foundation.

Mental Illness

The Supportive Community Living Program (SCLP) offers housing placement services to in-patients of both the State Hospital and Malcolm Bliss. Those individuals that need supervision are placed in nursing homes, boarding rooms, and group homes by SCLP's staff. Individuals who are capable of independent living are generally assisted in their housing placement by service organizations contracted with the State facilities. Discharged patients that are City residents are generally referred to the St. Louis Mental Health Center or Hopewell Comprehensive Mental Health Center.

In general, supportive services are coordinated by the placing agency. Agencies such as the St. Louis Mental Health Center, Hopewell, Independence Center, and ADAPT all offer follow-up services, and/or day programs. Supportive services and transitional group home situations are also offered by Places for People. Most of the housing and supportive service agencies take referrals other than those that come from the state.

Physically Disabled

Meeting the housing needs of the physically disabled and the challenges they face is heavily concentrated on the area of accessibility. Options for persons with physical disabilities range from subsidized public housing units, Section 8 units, and non-subsidized units. There are non-profit groups, such as the Paraquad Foundation which owns and operates an accessible apartment complex because the availability of integrated apartments is so limited. Paraquad is an independent living center that assets people with disabilities to find adequate housing and services. They are currently working in conjunction with the St. Louis Housing Authority on a program that provides both Section 8 vouchers and independent living services to ensure the success of maintaining a home. Other groups in the City that make housing referrals are Community Resource Associates, MR/DD and the Office on the Disabled.

Supportive services for persons with disabilities are offered through a variety of agencies. The City's Office on the Disabled makes referrals as does the Productive Living Board. Access Resources of Missouri, Inc. provides housing advocacy for people with disabilities. Paraquad provides services such as information and referral community education, and independent living programs. Helpful supportive services include: Adapt-Ability, Call-A-Ride,Metropolitan Employment and Rehabilitation Services, and the State Division of Vocational Rehabilitation which is the largest provider of training and educational services.

The most common challenges faced by persons with disabilities is the need for a variety of accessible housing options, some of which may include supportive housing. Accessibility to and the lack of these services presents barriers that are both psychological and physical.

Current trends indicate the shift from institutional care to the provision of independent, community-based living options. Matching individuals with appropriate housing and supportive services in community settings continues to challenge the resources of advocates and service providers. The problems are compounded by low incomes, fixed incomes and other afflictions such as vision and hearing impairment.

People with mental illness that are not institutionalized face a unique problem; they are often not able to successfully live alone. Depression and feelings of isolation are common. Often people who qualify for placement services are not qualified to receive supportive services. This compounds the isolated feelings and may leave them virtually stranded. Many providers believe "cluster" site arrangements would alleviate this situation; however, this approach minimizes freedom of choice and may perpetuate the "NIMBY" attitude in the site selection process. De-institutionalized people who reside in public housing are usually in a living situation where the staff at the project is inadequately trained to deal with their needs. Those persons who wish to leave public housing projects and retain their subsidized status, often have a difficult time accessing Section 8 vouchers.

Most of the challenges faced by persons with physical disabilities revolve around accessibility issues. There are a limited amount of affordable and accessible units available in the region. The cost of retrofitting units and the cost of adaptive equipment is often too high for individuals and landlords alike. Like other special needs groups, the situation is sometimes compounded by the need for live in attendants. Single persons in public housing are often placed in one-bedroom or efficiency units leaving no room for an attendant. There is a need for scattered site housing with the appropriate transportation and support services accessible to their residents. Scattered site units should be integrated throughout the community. Some people with disabilities prefer multi-person housing units because this would enable residents to share attendants.

Currently the City of St. Louis and the State of Missouri both provide housing assistance and housing referrals to persons with disabilities. There are several non-profit organizations in the City that also offer housing referrals and placement. Important issues to this population are not effectively addressed; therefore, the following recommendations are made:

a. Create a "one stop" clearinghouse that would access a network of housing referral and assistance programs as well as supportive services for all persons with disabilities.

There are many persons with disabilities in need of accessible, affordable housing that cannot be efficiently connected with private housing providers that have units available. This condition exists with supportive services as well. A centralized "network" would effectively link consumers and providers.

b. Continue funding housing assistance programs which enhance the options available to people with disabilities.

When administered in conjunction with appropriate services, these programs afford people with disabilities and their families the tools for independent living.

c. Educate private sector housing providers on the appropriate needs of tenants and home buyers.

In many instances home builders and landlords are willing to accommodate persons with MR/DD, mental illness, and physical disabilities. They need guidance on the needs of persons with disabilities and ADA requirements.

d. Review subsidized housing regulations monitoring unit sizes available to persons with disabilities.

Regulations usually disallow more than one bedroom units for disabled single-persons. This eliminates accommodations for care givers and live-in attendants.

e. Improve assistance to emergency shelters so that they are better equipped to deal with homeless people with disabilities.

Most shelters are not easily able to accommodate individuals with physical or mental disabilities. Improvements are desirable in terms of bathroom facilities, sleeping quarters and general accessibility. Additional services are necessary for those with mental disabilities, especially to minimize the frequency with which they are taken advantage of by other shelter residents. It is also necessary to provide a referral link between the shelters and a service provider network for persons with disabilities.

Current resources include the City of St. Louis, the State of Missouri, numerous non-profit organizations and private donations, and Section 8 housing vouchers. Because of the enormity of need and the diversity of populations that are encompassed in this category, it is difficult to arrive at a needed monetary figure. Means of funding the previous recommendations, however, could come from a variety of sources including continued City and State funding (including the City of St. Louis Department of Health and Hospitals), as well as a variety of assistance programs.

THE NATURE AND EXTENT OF HOMELESSNESS

The problem of homelessness in the City of St. Louis, like other cities in America, is the result of a multitude of factors including a growing number of those living in extreme poverty, the relative cost of housing and other problems such as those associated with mental health and drug and alcohol abuse. To date, solutions to homelessness have largely focused on the immediate needs of individual or families that for a wide range of reasons are homeless. This focus, although humane and necessary, has lead to an emphasis that defines homelessness as chiefly a problem of housing affordability. Although housing has become more expensive relative to the declining earning power of the poorest segment of society, it is just one of many conditions that have combined to push more individuals and families out of their shelter. The combination of lower levels of public assistance (both state and federal), lower levels of eligibility for public assistance, the continued loss of housing units, the automation of low skill jobs, higher unemployment among the very poor and the "creaming" of addictive services and mental health treatment has lead to the need for a panoply of services beyond shelters and permanent affordable housing. According to estimates based on the experience of local homeless service providers, nearly 85-90% of the homeless population is not prepared to live independently. In many ways, the current shelter system fights a heroic holding action, but is straining their staff and volunteers with solutions that are only "band-aids". Homelessness persists because the institutions and resources for long term solutions are not in place or have turned away from the homeless as intractable problems. In the short term, the homeless of St. Louis view the shelter system as a surrogate "safety net" for the limited employment opportunities, public assistance and treatment that many poor are provided.

Faced with little prospect of rising above poverty, many individuals and families "play" the system in order to survive in an increasingly violent and hostile urban environment. The local shelter system, because of the lack of inadequate long term solutions and resources, unwittingly contributes to the perpetuation of the homeless problem. Long term solutions would include greater treatment alternatives for large segments of the homeless population who have substance or alcohol addictions or have mental afflictions that impede "mainstream" participation and increased education and employment opportunities that keep potential earning power low. In addition, the pervasiveness of crack cocaine and availability of handguns has accelerated a deterioration of social conditions in many neighborhoods, creating tensions among and within families, forcing many into social isolation, cut off from families and friends. Others are forced to escape from abusive and violent living conditions.

The "crisis" of homelessness seems to have taken on an enduring quality as the measures designed to address homelessness are limited in their potential for success. As homelessness persists, the capacity of the shelter system must be maintained just so the problem does not appear to worsen. However, the potential for a worsening has already become evident as increasingly the local shelter system is viewed by the health, mental health and justice systems as an alternative for the participants of their programs. The shelter system had in effect, become a "dumping ground" for other institutional systems that are inadequate or do not carry out treatment or assistance to a proper end. In essence, the local shelter system is being called upon to accept those that have passed through other systems and have run out of options. The local shelter system then, specializes in "quick fixes" and continues to seek additional resources and capacity and help from other institutions for dealing with a segment of population that has numerous and complex problems and is beginning to spawn another generation. As the discussion below will illustrate, the scope of services provided by the homeless shelter system reflects the extent to which the shelter system has substituted for previous institutions such as those within the mental health system and is now serving in educational, health and psychiatric capacities in order to meet the needs of its client populations.

As Table 20 shows, the extent of services provided to the homeless population is extensive. Within the City of St. Louis, there are 113 organizations that provide services to the homeless. St. Louis County currently counts 31 organizations, with another 11 serving in both the city and the county, bringing the total to 155 entities that provide homeless and homeless-related services. As the list of services indicates, the range of services provided covers the very basic needs of food, clothing, shelter and health care, to more complex needs such as education, employment training, drug and alcohol counseling and "life skills" training. Many of these organizations perform or provide more than one service. This is particularly true of many shelters for special needs populations such as the mentally ill. Many shelters report that substance and alcohol abuse is pervasive among their client populations.

Coordination and Cooperation

A key characteristic of the St. Louis homeless system has been its high level of coordination and organization. A relatively low degree of parochialism and continued dialog through the Homeless Network Board has maximized service delivery and has served as a model for other cities. Clearly, the size of the homeless problem in St. Louis and the size and scope of services provided by the local homeless system is an indication of the dedicated and tireless work of numerous professionals and countless volunteers.

Homeless Population Estimate

As Table 21 indicates, a point-in-time estimate of the local homeless population is around 3250 people, with an estimated 770 families. Individual adult men and women totaled an estimated 1000 with another 300 homeless youths. The table also illustrates the high levels of mental illness and alcohol and substance abuse that afflict a large segment of the homeless population. Local service providers report that nearly nine out of ten homeless individuals suffer or have suffered through some form of domestic violence. It also points to the necessity of segregating population segments or creating more specialized shelters and transitional programs for specific subgroups.

The provision of homeless services is generally thought to fall into three categories: shelters, transitional housing and preventative services. These types of services are reflected in Tables 22, 23 and 24. It is evident that the range of services required to meet the needs of the general homeless population is extensive; the homeless population needs education, job training, counseling for drug and alcohol abuse (AOD), day care assistance and general training in "life skills" such as keeping a checkbook, paying rent and utilities and reading a bus schedule. Because this population is essentially unprepared for participation in the work force that can meaningfully improve their lots in life or to live in permanent housing, the homeless system often substitutes for educational, mental health and social needs that these individuals and their families did not acquire or access at earlier stages of their lives. The Housing Resource Center reports that the most common reasons for a housing crisis between April 1990 and December 1993 were (1) never independent, (2) eviction, (3) loss of income, and (4) lack of income. The problems associated with extreme poverty and all its attendant problems are being addressed directly by the shelter system.

Table 23 summarizes the number of transitional housing service providers within the City of St. Louis. This group provides a combination of living skills and other supportive services such as AOD counseling for homeless families, and some individuals, that have passed through the shelter system and have shown caseworkers that they could "transition" into conventional housing with the additional training and services provided by these programs. Because of the pre-screening process, many of those that enter the program successfully reenter society, but will probably always remain at-risk of returning. These transitional housing programs vary greatly by the needs of their client group and the sophistication of supportive services. Transitional housing continues to be an important part of the homeless service system.

It was estimated in the 1993 CHAS (Comprehensive Housing Affordability Strategy) that nearly 15,000 households in the city have experienced homelessness. About 21% (3200) of those 15,000 are homeless or in transitional housing at any given time, with the remainder "at-risk" of returning to the system. The St. Louis shelter system also works to "prevent" homeless by providing a variety of services aimed at helping an individual or family from becoming homeless. These services include such things as eviction prevention through rent or mortgage grants, crisis intervention through tenant/landlord or abuse mediation, relocation from overcrowded conditions or condemned properties and relocation from emergency shelters. Table 24 shows the type of day shelter service provided by the St. Louis homeless system. It is indicative of the types of other services that are offered in an attempt to help individuals and families cope with their impoverished condition.

The problems of the homeless are compounded by additional conditions that have become all too familiar to homeless service providers. It is increasingly common for homeless persons and those threatened with homeless to be "dual diagnosed" with drug and alcohol abuse, mental illness, mental retardation or development disabilities, AIDS or physical and/or mental abuse. These afflictions often combine or create the poverty conditions that ultimately leads to homelessness. Individuals and families with any of these conditions require specialized treatment and services that transcend the basic needs of food, clothing and shelter. In many instances, the mixing of special needs homeless and nonspecial needs populations within shelters and other service facilities is particularly problematic and has lead to the creation of specialized shelters and service facilities, such as those for mentally ill single men and women, battered women, pregnant women, those afflicted with HIV or AIDS and most commonly today, those with drug and alcohol abuse problems. As mentioned above, the needs of these special needs groups stretch the capacity of the local homeless system to its limits. As more has been learned about the homeless population and the existing capacity has grown to a point beyond a perceived crisis situation, it has become apparent that the homeless problem is one that will persist until other institutions that deal with domestic violence, mental illness and alcohol and substance abuse begin to do more than send their discharged clients into shelters. This will require better support from Federal and State governments, increased cooperation and coordination, and the creation of a wide range of supportive service and housing types that meets the needs of special needs populations with very unique needs.

The needs of the local shelter system are many and reflect the short term necessity of providing a humane alternative to life on the streets. It must meet the short term issues of providing emergency shelter, crisis intervention, mediation, and assistance, and provide sanctuaries and recovery housing for those who are mentally ill or are addicted to alcohol or controlled substances. It must also engage in prevention services and activities that can keep people out of the shelter system and into the appropriate type of treatment or activity. It must also strive to seek better and more support from institutions that are functionally designed to deal with the many problems that homeless persons face. Recommendations include:

a) Develop single-room occupancy (SRO) housing.

The elimination of "skid row" housing and boarding houses that were traditionally affordable to individuals in low paying jobs has caused a serious hardship. Creating a housing alternative of this type would serve many of the individual homeless that find shelters an unwelcome option.

b) Create Congregate Living settings for those recovering and/or are in need of supportive services.

These housing settings combine supportive housing with services for those with various types and stages of mental illness and for those that are transitioning from treatment programs or prison into conventional housing and employment.

c) Increased Prevention Services.

These activities are fundamental to detouring individuals and families from shelter services, keeping them in their homes and providing the necessary life skills counseling and/or remedial training.

d) Create "Safe Houses" for those escaping domestic violence.

There is growing recognition of the extent of domestic violence and abuse in "at-risk" homeless households. Many need a "place" where they can temporarily escape an abusive, violent situation.

e) Increase the supply of transitional housing for special needs groups including veterans.

Experience has demonstrated that approximately 8 out of 10 homeless persons are not prepared or capable of living independently in permanent housing for a whole host of reasons. Transitional housing provides the necessary counseling and preparation for independent living.

f) Create a shelter with support services for adolescent boys.

A growing segment of the homeless population is adolescents that have runaway or have become disaffiliated from family and friends. These services would provide youth with safe shelter, education, counseling and appropriate treatment for overcoming the stress of their predicament.

g) Create or "wet shelters" for those with alcohol or substance abuse problems.

Increasingly, shelter staff are faced with homeless persons who because of their addictions to alcohol or controlled substances become violent. These shelters would be staffed with persons trained to handle this population and a "place" where they can get off the street without endangering the general shelter population.

h) Create "sanctuaries" for those resistant to standard intervention.

Hard core street dwellers are those terminated from emergency shelters due to behavior problems need a safe place to stay at times during the day and night that maximizes autonomy.

i) Expand street outreach efforts for hard to reach clients.

Increased effort is necessary to improve the capacity of mobile outreach programs that counsel street dwellers, and transport them, when possible, to safe havens and sanctuaries.

j) Explore alternatives for long term supportive housing.

The reality is that some families need assistance and support services on a long term basis if they are to remain successfully in permanent housing. One approach would place clients graduating from transitional housing into a 4 to 6 unit apartment building with an anchor family as site manager. The goal would be to have intensive support services and applied home living skills within an attractive, safe accepting environment.

k) Explore new mechanisms for the delivery of intensive, integrated services.

A compelling idea developed during the Empowerment Zone strategic planning process was that of integrated service centers where individuals could receive an array of services close to where they live. A variation that could improve the efficiency of homeless services would be the establishment of a "social services mall." This would involve the co-location of a wide range of services aimed at stabilizing people. Examples of contributing organizations might include: Division of Family Services, Social Security Administration, Housing Redevelopment Opportunities for Women, and the Community College.

Support for homeless services comes from a variety of sources that include government, nonprofit and private sources. From government, homeless services are supported by federal, state and local funds. Stuart B. McKinney and other funds are administered through a wide range of federal agencies, including the Department of Housing and Urban Development, Department of Labor, Department of Health and Human Services, Department of Education, Department of Energy and Department of Defense. State and local funds also support a range of activities, including the Housing Resource Center, and a range of service providers. Nonprofit support comes from organizations such as the United Way, foundations and charitable trusts. Fund raising also contributes a significant amount of private donations.