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State Files – Oregon [2]
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State Files – Oregon [2]
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Richard C. (Rick) Allen's Files
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FOIA Number: 2013-0661-F (2)
FOIA
MARKER
This is not a textual record. This is used as an
administrative marker by the William J. Clinton
Presidential Library Staff.
Collection/Record Group:
Clinton Presidential Records
Subgroup/Office of Origin:
National Service
Series/Staff Member:
Rick Allen
Subseries:
OA/ID Number:
2151
FolderID:
Folder Title:
State Files - Oregon [2]
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S
66
2
3
1
03/25/93 13:58
7503 378 3395
OR CYSC
Oregon
MEMORANDUM
COMMUNITY
CHILDREN
TO:
Jina Sanone
White House Office of National Service
AND YOUTH
SERVICES
FROM:
Becky Eklund, Director
COMMISSION
Oregon Youth Conservation Corps
DATE:
March 25, 1993
SUBJECT: Oregon Youth Conservation Corps in Portland
Following is a two-page description of the Washington County Service Corps located in
Portland, Oregon (not to be confused with the Washington Service Corps in Washington
State). The program has a strong education emphasis and has been in operation for
three years.
Please let me know of anyone interested in visiting the program as part of their visit to
Oregon for the upcoming Forest Conference. The Corps members and program director
would be thrilled to show off their program.
Attachment
530 Center Street NE
Suite 300
Salem, OR 57310
(503) 573-1283
FAX (503) 378-8395
03/25/93
13:59
503 378 8395
OR CYSC
Washington County Service Corps - Portland, Oregon
The Washington County Service Corps is located in Portland, Oregon. The program
serves youth in the area by providing a meaningful education option for high school
age students who might otherwise contribute to the growing statistic of teen drop-outs.
Following is a description of the program and its goals.
SPONSORS: The Washington County Service Corps is a program of the Washington
County Education Service District in cooperation with local school districts. The
program is funded through cooperation with several agencies. Work and service
project sponsors provide most of the financial support for the Corps, combined with
grant funds from the Oregon Youth Conservation Corps. Businesses provide funding
in turn for needed work done. In the long run business and the community gain from
a more educated and better trained worker.
PARTICIPANTS: The program is open to young adults ages 16- 24. Preference is
given to high school students ages 16 to 19. Applications are screened by the high
school and the program supervisor. A personal interview is required before final
selection. The program Is one semester long.
GOALS: The Service Corps strives to encourage the personal and educational
growth of Corpsmembers through group and individualized work/service projects and
educational activities. By the end of the semester, a successful Corpsmember will
have:
earned up to four credits toward high school graduation;
developed post-Corps education and career plans and acquired skills and
attitudes for success;
experienced growth in personal and Interpersonal skills, self esteem and
discovered a sense of empowerment;
earned a weekly stipend;
developed a feeling of community citizenship and responsibility; and
acquired entry level job finding and retention skills.
PROGRAM: To achieve these goals, the program has several components:
Boot Camp. The program begins with a five day camp experience to introduce
the program and to build the understanding and skills necessary for success in the
Corps
Work/service Projects. Working in crews, Corpsmembers complete projects such
as landscaping, tree planting and community improvement. Work/service projects take
place four days a week.
Mentorships. Corpsmembers who demonstrate sufficient preparedness may have
the opportunity to explore various careers by working in a community agency or
private company.
03/25/93 13:59
503 378 8395
CR CYSC
Washington County Service Corps - Portland, Oregon
Page two
Education. One day a week is devoted to formal education. Time is spent in
group activities related to work projects. The remainder is spent in individual study.
An important part of the program is the connection between education and the work
itself. Therefore, each project is evaluated for Its educational potential. Crew leaders
work with the education coordinator in an effort to take hill advantage of the learning
opportunities of each work project.
HIGH SCHOOL CREDIT: Corpsmembers maintain enrollment in their home high
school, and academic credit is awarded by the high school. Three and a half credits
are awarded on a pass/fail basis in Personal Finance, Writing, Speech. Construction
Skills, Physical Education, Environmental Science and Human Behavior. If the student
has already received credits in some or all of these subjects, other courses can be
substituted. Additional credit can be earned at Evening Academy, Twilight School,
Portland Community College or some other educational institution. After a semester in
the Corps program, the students are expected to return to their home high schoo! or to
have identified another educational option to pursue.
EXPECTATIONS: Corpsmembers are expected to uphold high standards of
performance including attendance, punctuality, productivity, participation in all activities
and academic progress. Failure to perform to expectations and to follow rules will
result in dismissal from the Corps. This does not constitute suspension or expulsion
from the home high school.
STIPEND: Corpsmembers receive a weekly stipend to cover incidental expenses
related to the program.
SAMPLE WORK PROJECTS
Forestry projects including but not limited to, tree planting, road side clearing,
pre-commercial thinning, basal pruning, slash piling and nursery work.
Weatherization of low income homes; construction of wheelchair ramps for schools
Construction of raised boardwalk through a wetlands area
Planted aquatic plants in a wetland revegetation project.
Landscaping projects at Portland Community College and a local parks and recreation
department.
Trail building and maintenance including construction of railings, benches and bridges
along trails.
COMMUNITY PLANNING WORKSHOP
Jack Liu photographs
SATISFIED CPW CLIENTS
"[Community Planning] Workshop has the ability to provide
planning assistance in a variety of fields from homelessness to
community revitalization and planning activities, to transportation
planning. A great deal of talent and experience can be obtained at a
reasonable cost."
Dan Van Otten, State Community Services,
Department of Human Resources
"In some delicate situations in dealing with other units of
government the students in Community Planning Workshop tend to
be less intimidating in the data collection phase than a "high-
powered" consultant; the students tend to get more cooperation."
Don Byard, Oregon Department of Transportation
"Professionalism, creativity, and results are what you get from
the Community Planning Workshop. This is a group of students that
is motivated and that understands "real-world" challenges and
research needs. I highly recommend Community Planning Work-
shop."
Julie Curtis, Acting Director of Tourism,
UNIVERSITY OF OREGON
An
Oregon Economic Development Department
applied
"Community Planning Workshop reports are complete and
planning
timely, and are organized in a manner that makes them easy to read
research
and understand. There is sufficient statistical data to back-up the
conclusions."
program
Keith Petrie, Executive Director,
helping
Mt. Hood Recreation Association
agencies,
"Community Planning Workshop has given us solid statistical
communities,
analysis of community needs, interests, activities, and age groups.
and
With these components we are better able to choose a path for our
organizations
future. The staff of [the] workshop gave our morale a boost,
resolve
encouraging us to keep working on some long-term goals as well as
providing some new ideas and specific ways to achieve these goals."
planning
Maryjo Anderson, Planning Commissioner,
issues.
City of Nehalem
CPW is funded, in part, by State of Oregon Community Services and the
Fund for the Improvement of Post-Secondary Education.
COMMUNITY PLANNING WORKSHOP
AREAS OF EXPERTISE
Community Design:
City of Harrisburg Community Design and Action Plan
Oregon Health Sciences University Campus
Connections
Village of Government Camp Design Alternatives
Resource Management:
McKenzie River Corridor Management Inventory
Highway 101 Parkway Access Study
Wild and Scenic Rivers and Private Lands
Community Needs Assessment:
South Coast Senior Citizen Needs Assessment
Clatsop County Transportation Needs Assessment
Nehalem Bay Community Center Needs Assessment
Market Analysis:
Crater Lake National Park Winter Recreation
The Community Planning Workshop (CPW) is an
Market Assessment
applied planning research program in the Department of
Market Analysis for Increased Air Service at the
Planning, Public Policy and Management at the University
North Bend Airport
and
of Oregon. Oregon communities, agencies, and organiza-
City of Coos Bay Retail Market Analysis
helping
tions contract with the CPW to receive technical assistance
ities to
with planning and development issues.
Economic Impacts Analysis:
oblems.
Students work in small research teams with faculty
1990 Columbia River Gorge Sailboard Economics
members to apply research and development techniques
1989 Oregon Skier Profile
that lead to the identification of tangible solutions. Under
1988 Oregon Ski Economics
the supervision of CPW program faculty members, students
have completed more than 100 planning and development
Public Policy Analysis:
research projects since 1980.
City of Corvallis Disaster Plan
Year-round service: The Community Planning Work-
Resident Attitudes Toward Tourism in the
shop provides research services to communities, agencies,
Columbia Gorge
and organizations on a year-round basis. The program main-
University Housing Day Care Needs Assessment
tains a staff of five faculty project managers and thirty
student researchers. This large and diverse staff allows the
Community Economic Development:
Community Planning Workshop to respond quickly to a
Village of Government Camp Economic
wide range of requests from client groups.
Development Analysis
Interdisciplinary expertise: The Community Planning
Evaluation of Economic Development Opportunities
Workshop has the capability to conduct research dealing
for the City of Veneta
with a number of planning and development issues. Our
City of Reedsport Tourism Marketing Plan
students and faculty members come from a variety of disci-
pline areas including economics, geography, architecture,
landscape architecture, leisure studies, and planning and
public policy. Some of the areas of expertise used in current
and past projects are listed on the opposite page.
The University of Oregon is an equal opportunity, affirmative action
institution committed to cultural diversity.
APR-23-93 FRI 11:05
P. 01
Holiday Inn
Aruba
Ricommended by: Jay Donalise
SEND
TO:
DATE.
4/23/93
NAME: JINA SANONE
TIME:
6420
COMPANY: Office of NATIONAL SORIKE FAX: (202) 456-6402
ADDRESS: as Executive BLDG
WASHINGTON DC
voice voic-(202) 456 6444 456 6444
FROM:
FAX NOS.: 2978 25165/25870
NAME: DAVID Pover
PHONE:
2978 23600
COMPANY:
HOLIDAY INN ARUBA
ADDRESS: Palm Beach, Aruba
UNIVERSITY of Orogon
Dutch Caribbcan
SPECIAL INSTRUCTIONS/MESSAGE
ATTACHED Please Bup: 13 A 2, page Decommary of a
pilot program for Natronal Severe using callage-level
volunteers to assest the Oregon Rural DEVELOPMENT
Council implement Programs to assest Hogh
anemployment reservee dependent Communities.
2) A partial lost of the OREGIN Rural
Development Correct membership and
3) A activities 1 pg summary of my Undersoly of Organ
I would like TO MBET wort you Thursday
April 29 to descuss ways I meght assist year
office and prepase eproposal for a pilet progrem
when we meet I will bring copies of clairersoly
work for Communaties by Coolage level students, and
copies of our news letter. F look forward to
meeting with you Iwill call year affree
Monday 4/26/93 to see when a meeting Cert bearranged
TOTAL PAGES:
including this information page
Operated by HIM (Aruba) N.V.
SIGNATURE aPPoing
A Days Company
APR-23-93 FRI 11:05
P. 02
Opportunities for ORDC
ORDC is in a position to provide national leadership by establishing a pilot program for rural applications of the
National Community Services Act. With support from ORDC members we could:
1. assist Oregon rural communities and regions identify development issues and opportunities and design
and implement programs to improve the quality of life,
2. help create new employment opportunities and restore renewable resources in rural areas,
3. encourage college students to engage in public service to rural areas,
4. develop a mentor program using state and local officials to help train student volunteers how to provide
assistance to rural communities and regions.
5. use college level students as rural "go fers" who assist community and regional organizations by helping
to collect and organize information important to helping Oregon communities and regions establish new
directions, and
6. engage ORDC members in this process by having them give advice to the 'go fers' who will serve as
field assistants to the ORDC helping to give new direction to rural community and regional development
in Oregon.
Background on the Program
Through the National Community Services Act states and local organizations will be given the opportunity to design
innovative ways to meet identified national priorities. The Clinton administration sent this proposed four year, $7.4
billion program to Congress in April of 1993. Appropriations for the National Community Service Act are part
of the Clinton Jobs bill presently being delayed by some Republican members of the Senate.
The bill is intended to attract people who are in college or wish to go to college to participate in community service.
An objective of the program is to reduce the cost of college by allowing students pay for 2 portion of their college
expenses through community service. Beginning with a funding base of $400,000 and 25,000 volunteers the
program is expected to attract as many 36 100,000 participants with funding increasing in $3.4 million by 1997.
President Clinton envisions "an anny of 100,000 young people restoring urban and rural communities and giving
their labor in exchange for education and training" The volunteers are expected to help in medical clinics, or help
by implementing pro-active community policing programs, or work to reduce pollution, create new work
opportunities and generally improve the quality of life in urban and rural America. The Clinton administration
promises to "help pay operating costs for community groups with proved track records, providing the support they
will need to grow."
Volunteers will be expected w emull for periods of a year at a time. Like the Pcaco Corps those volunteere will
receive minimum wage stipends, on-the-job training, vouchers to be applied toward future education expenses or
fur reduction of existing educational loans.
How Can ORDC Help Implement this Program ?
ORDC can establish a pilot program for funding consideration by the National Community Services Commission.
The program would:
Demonstrate how ORDC will use college-level students, directed by people with experience in Oregon
rural development, and mentorship guidance from ORDC state and federal agency representatives,
, Bill Clinton, The New York Times, OP-Ed 2/28/93
Owline for an ORDC Proposal to the
Office of National Community Service
APR-23-93 FRI 11:06
P. 03
assisting communities collect information, develop plans, prepare proposals and implement strategies
which improve conditions for rural areas in Oregon.
To develop this program the ORDC, working with RDII, the University of Oregon Community Planning Workshop,
the U of o Sustainable Development Group and other interested public and private programs, would prepare a
proposal which describes how the pilot rural development program would be implemented. A potential outline for
this proposal would include the following:
1. Identification of several Oregon regions each with three to five communities with an economic base
which is predominantly resource-based. The selected communities should have 8 demonstrated need for
assistance and evidence of a willingness to work together to help solve existing problems.
2. Inventory of Strengths, Weaknesses, Opportunities and Threats for each community and types of "statt
assistance" most likely to he needed to help assist communities with these features.
3. Evaluation of past and present regional strategies used to guide economic development for the area.
1. Based on the outcomes of steps 2 and 3 work with local leaders to develop a 12 month work program
for each community and the regions.
5. Identify skills most needed in the college-level volunteers who would assist community groups collect
information, evaluate options, develop plans, prepare proposals and implement strategies which improve
local conditions and contribute to an integrated regional strategies.
6. Develop materials to attract college-level volunteers with desired entry-level skills.
7. Develop a training program for volunteers before they are assigned to rural communities.
8. Develop criteria for the selection of rural volunteer coordinators. Ideally, volunteer coordinators will
be persons with graduato degreer. and experience appropriate in the needs of the region. It 18 expected that
each region would have a volunteer coordinator who works with volunteers and local organizations helping
to guide and assiot with the volunteer's day-to-day activities. The volunteer coordinator would also be
responsible for arranging weekly meetings of the volunteers in a region to share experiences and network
ideas for regional problem-solving. Volunteer coordinators would also be responsible for initial liaisons
with ORDC mentors.
8. Develop project management training programs for volunteer coordinators.
9. Create mechanisms for regular on-going feed-back and evaluation of the program.
10. Establish a budget for National Community Services support of a two year experimental pilot program
which begins in the Fall of 1993.
11. Characterize the rural development experience and areas of expertise of the ORDC membership.
If the membership of ORDC IS willing w develop and submit this proposal Unere is a good possibility that it could
be considered as part of the response and solution to issues raised at the recent forest summit. Jina Sanone, of the
office of National Community Service, has expressed some preliminary interest in this model. During the work
of April 26, 1993 I plan to meet with Jina to get additional background on the program and how ORDC might best
structure and present a proposal.
If you are interested in having an ORDC proposal developed I am willing to assist in preparing a draft for your
review and comment. If you have questions or wish to discuss this further please call. David Povey at the
University of Oregon Department of Planning, Public Policy and Management at 340-3812 of 346-3633. I will be
our of the state April 22-29, 1993,
Ow!lne for an ORDC Proposal to the
Office of National Community Service
APR-23-93 FRI 11:07
P. 04
OREGON RURAL DEVELOPMENT COUNCIL
Active Member List
1/1/93
Executive Director
Judith St. Claire Exec. Director
Oregon Rural Dev. Council
111 S.W. 5th Ave. Suite 2010
P.O. Box 40204
Portland, OR 97240-0204
Phone: (503) 326-5833 FAX: (503) 326-5877
Federal Government
Ed Allen
Kenneth Brooks
USDA Forest Service
US EPA
P.O. Box 3623
822 SW 6th Ave., 3rd Floor
Portland, OR 97208
Portland, OR 97206
Phone: (503) 326-3392 FX: (503) 326-5569
Phone: (503) 326-3250 FX: (503) 326-3399
Sonja Angeline
Robert Clour Division Administrator
US Department of Labor
US DOT Federal Highway Admin
1111 Third Ave.., Room 920
530 Center St., NR Suite 100
Seattle, WA 98101-3212
Salem, OR 97301
Phone: (206) 442-0574 FAX:
Phone: (503) 399-5749 FX: (503) 399-5838
Anne Berblinger Chair
Richard Ferraro
US Dept of Commerce EDA
USDA Forest Service
One World Trade Center
P.O. Box 3623
121 SW Salmon Ave Suite 242
Portland, OR 97208
Portland, OR 07204
Phone: (503) 326-6826 FX: (503) 326-5044
Phone: (503) 326-3078 FX: (503) 326-6351
Bud Fischer Rural Dev Coord
John Bonham
USDA RDA
Housing and Urban Development
1220 SW 3rd Ave Rm 1590
Community Planning & Dev
Portland, OR 97204
520 SW 6th Ave
Phone: (503) 326-2735 FX:
Portland, OR 97204
Phone: (503) 326-7018 FX:
John Gilman
US Small Bs Admin
Wilford Bowker
222 SW Columbia, Suite 500
US Dept of Interior BIA
Portland, OR 97201
1002 NC nomiday
Phone: (503) 326-5221 FX: (503) 326-2808
Portland, OR 97232-4169
APR-23-93 FRI 11:07
P. 05
ORDC Active Member List
Page 3
1/1/93
State Government
Bruce Andrews
Jon Jaqua Mar Bus Dev Division
Oregon Dept. of Agriculture
Oregon Economic Development Dept.
635 Capitol St., NE
775 Summer St. NE
Salem, OR 97310
Salem, OR 97310
Phone: (503) 378-4152 FX:
Phone: (503) 373-1225 FX: (503) 581-5115
Keny Barnett
Annette Johnson
Office of the Governor
EOSC University Center
254 State Capitol Bldy
Regional Services Institute
Salem, OR 97310-0370
1410 L Avenue
Phone: (503) 378-3111 FX: (503) 378-6075
La Grande, OR 97850
Phone: (503) 962-3369 FX: (503) 962-3668
Ollvia Clark Asst to the Director
OR Dept of Environmental Quality
Meadow Martell
811 SW 6th Ave
Office of Rural Health
Portland, OR 97204
OR Health Scl Univ
Phone: (503) 229-5327 FX: (503) 229-6124
3181 SW Sam Jackson Rd MP 250
Portland, OR 97201
Ray Craig
Phone: (503) 494-4450 FX: (503) 494-4798
Oregon Department of Forestry
2600 State Street
Norma Faulus
Salem, OR 97310
Supt. of Public Instruction
Phone: (503) 378-2539 FX:
OR Dept of Education
700 Pringle Park Way South
Patty Cutright Online Reference
Salem, OR 97310
Walter M Pierce Library EOSC
Phone: (503) 378-3573 FX:
1410 L Ave.
La Grande, OR 97850
Steven Petersen Director
Phone: (503) 962-3792 FX: (503) 962-3335
Oregon Economic Development Dept.
775 Summer Street NE
Bruce DeYoung Ext Sea Grant Program
Salem, OK 97310
OSU Office of Extension Programs
Phone: (503) 373-1206 FX: (503) 581-5115
Ballard Extension Hall 108
Corvallis, OR 97331-3601
Reynard Ramsey
Phone: (503) 737-0702 FX: (503) 737-4423
OR Housing & Comm. Serv. Dept.
1600 State Street
Mark Ford
Salem, OR 97310
Oregon Dept. of Transportation
Phone: (503) 373-1614 FX: (503) 378-3465
405 Transport Building
Salem, OR 97301
Phone: (503) 378-8273 FX: (503) 373-7194
Robyn Holdman
Oregon Dept. of Agriculture
635 Capital Street
Rick Stevenson
Salem, OR 97310
Oregon Farm Bureau
Phone: (503) 378-3773 FX: (503) 378-5529
1701 Liberty St. SE
Salem. OR 97302
Phone: (503) 399-1701 FX: (503) 399-8082
APR-23-93 FRI 11:08
P. 06
ORDC Active Member List
Page 5
1/1/93
Local Government
James Zelenka Bcon. Dev. Coordinator
Vickle Barrell
Clatsop County Commission
Lane Council of Governments
125 E. 8th Avenue
749 Commercial
Astoria, OR 97103
Eugene, OR 97401
Phone: (503) 325-1000 TX:
Phone: (503) 687-4095 FX: (503) 687-4099
Kalph Blanchard County Commissioner
Polk County
850 Main Street
Dallas, OR 97338
Phone: (503) 623-8173 FX: (503) 623-0895
Louis Carlson Co-Vice-Chair
Morrow County Comission
Courthouse
Heppner, OR 97836
Phone: (503) 676-9061 FX: (503) 676-5577
Dale Courtney Mayor
City of Milton-Freewater
202 NW Fifth Ave.
Miltn-Freewater, OR 97862
Phone: (503) 938-5281 FX:
Ellie Dumdi County Commissioner
Lane County
Public Service Bldg
125 E 8th Ave
Eugene, OR 97401
Phone: (503) 687-4203 FX: (503) 687-3803
Vicki Goodman Director
Tillamook EDC
4000 Blimp Blvd.
Tillamook, OR 97141
Phone: (503) 842-2236 FX: (503) 842-3680
JoAnne Holcomb
City of Madras
71 SE "D" Street
Madras, OR 97741
Phone: (503) 175-2341 FX: (503) 475-7061
Dale White
Harney County Commission
P.O. Box 600
Burns, OR 97720
Phone: (503) 573-6356 FX: (503) 573 8383
APR-23-93 FRI 11:08
P. 07
ORDC Active Member List
Page 7
1/1/93
Private For-Profit and Non-Profit
Clara Andrews
NW Community Dev. Corp.
Betty Mills Executive Director
2309 SW 1st Ave. #141
Mid-Columbia Econ. Dev. Dist
Portland, OR 97201
502 E 5th Street, Annex B
Phone: (503) 248-3308 FX: (503) 248-3308
The Dalles, OR 97058
Phone: (503) 296-2266 FX: (503) 298-2084
Brian Cole Director of tcon. Dev.
City & County of
Jack Palmer
Baker City Hall, Suite 204
7249 SW Abalone
P.O. Box 650
South Beach, OR 97366
Baker City, OR 97814
Phone: (503) 867-4397 FX:
Phone: (503) 523-6541 FX:
John Prag
Kevin Cooper
Greater Eastern OR Developmt Corp
NW Oregon Econ. Dev. Dist.
#1 Landmark Square
P.O. Box 3197
P.O. Box 50
La Grande, OR 97850
Boardman, OR 97818
Phone: (503) 963-2399 FX: (503) 963-8219
Phone: (503) 481-2404 FX: (503) 481-6262
Ron Fox Manager
Jay Rasmussen Exec. Director
PacifiCorp (Electric Opr)
OCZMA, Inc.
Economic Development
313 NW Second Street
920 SW 6th Ave Rm 300 PSB
P.O. BOX 1033
Portland, OR 97204
Newport, OR 97365
Phone: (503) 464-5444 FX: (503) 464-5462
Phone: (503) 265-8918 TX:
Peter Graff
George Samaan Executive Director
CCD Business Dev. Corp.
OR Housing & Asso. Services, Inc
744 SE Rose Street
525 Glen Creek Rd. NW S #210
Roseburg. OR 97470
Salem, OR 97304
Phone: (503) 672-6728 FX: (503) 672-7011
Phone: (503) 585-6193 FX: (503) 585-6898
John Hall
Peter Sears
US Bank
Oregon Arts Commission
Mid-Willamette Comm Bank Ctr
835 Summer Street NE
P.O. Box 14430
Salem, OR 97310
Salem, OR 97309
Phone: (503) 378-3625 FX: (503) 373-7789
Phone: (503) 300 4113 FX: (503) 399-4144
O.E. Smith
Debble McCabe
OSU Extension Service
GTE Northwest
Ballard Extension Hall 101
3850 Risley
Corvaills, OR 97331-3606
Milwaukie, OR 97267
Phone: (503) 737-2713 FX: (503) 737-4423
Phone: (503) 659-9983 FX: (503) 653 2600
Jill Thorne
Qary Miller
OR Trail Coordinating Council
US West Communications
222 NW Davis, Room 309
150 Stewart Avenue
Portland, OR 97209
Medford, OR 97501
Phone: (503) 228-7245 FX:
Phone: (503) 776-8080 FX: (503) 776-8025
APR-23-93 FRI 11:09
P. 08
DAVID POVEY
Educations and Certification
1972
Ph.D., City and Regional Planning, Cornell University
1969
M.R.P., Regional Planning, Cornell University
1963
B.S., Business Administration and Political Science, Lewis and Clark College
Employment
1990-
Co-director, Sustainable Development Group, University of Oregon
1983-
Director, Urban and Regional Planning Program. University of Oregon
1979-
President, UniPlan Associates, Eugene, Oregon
1978-
Director, Community Planning Workshop. University of Oregon
1985-
Vice Chairperson, Oregon Winter Recreation Advisory Committee
1973-82
Head, University of Oregon Department of Urban and Regional Planning
1970-73
Assistant Director, Pacific Urban Studies and Planning Program, University of
Hawaii
1966-67
Project Manager, American-Yugoslav Project in Regional Planning Studies
Professional Consulting Activities
1993
Market analysis of rural use and future demand for electronic communication
1993
Prepared and implemented a survey of residents to determine community values
1993
Directed work on the development of a strategic plan for Oregon ski industry
1992
Prepared working papers on Windsurfing and Eco-tourism in the Columbia Gorge
1992
Organized University of Oregon Sustainable Development Research Group
1992
Directed Market Analysis for Winter Use of Crater Lake National Park
1992
Prepared expert testimony for ski area expansion for Mt. Hood Meadows
1991
Conducted a market analysis and economic feasibility assessment for a proposed ski
area at Mt. Bailey, Oregon
1991
Organized and co-directed Costa Rica Windsurf Research Team site visits.
1991
Analyzed the economic impacts of windsurfing in the Columbia River Gorge.
1991
Analyzed the economic feasibility expansion of visitor facilities for Crescent City
1990
Directed a design competition for the City of Government Camp, Oregon.
1989
Conducted a parkway access study for portions of Highway 101 in Coos County.
1988
Analyzed the economic impacts of the Oregon ski industry in the 1986-87 Scason
1987
Conducted a feasibility assessment for classified research at the Riverfront Research
Park
1987
Analyzed the economic impacts of sailboarding in the Columbia River Gorge.
1986
Conducted a market analysis for the proposed Riverfront Research Park at the
University of Oregon.
1986
Analyzed the feasibility of public/private recreation marketing for the Willametic
National Forest.
1986
Analyzed the economic impacts of the Oregon ski industry in the 1986-87 Scason
1986
Developed a master plan for development of a cross-country skiing destination
resort in Frisco, Colorado.
1984
Conducted a dispersed recreation study in the Santiam Pass área.
1982
Developed an inventory of training needs for land use planners and resource
managers in rural areas of Alaska.
3-4 STro REGION w/amm
EVALUATION
VIVOR OREGON
As PILOT PROGRAM
ASSISTANCE 20
PIPSE GRANT USED FOR STAFF
EVALUATION
30 SIVDONTS WORK 8-12
MOSILY RURAL Timber
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OREGON FUTURES
FALL 1992
NEWSLETTER OF THE UNIVERSITY OF OREGON COMMUNITY PLANNING WORKSHOP
VOLUME 4
DISCOVERING NEW USES FOR AN OLD HOTEL
A CPW research team of six U of o
graduate students recently completed a
detailed analysis of potential future uses of
an historic hotel located in The Dalles.
The research was prepared for the Mid-
Columbia Community Action Program
through a grant from the State Department
of Housing and Community Services.
The City of The Dalles has one of the
largest and best-preserved historic districts
in Oregon. Built in 1910, the
Commodore Hotel remains today as one
of the most prominent structures in The
Dalles Historic District.
In the past few years, the Columbia
River Gorge area has attracted an
increased number of visitors who are
creating significant growth in retail trade,
visitor lodging, food services and other
related visitor services. The demand for
seasonal and year-round housing in the
Gorge has also increased dramatically.
Commodore Hotel as it appeared in the 1930s.
Increasing visitor demand for seasonal and
year-round recreation/traveler housing is
driving the cost of housing up and
residential use. During the five month
help cover some of the housing costs of
reducing the number of suitable, available
research period the CPW team explored
the low-income seniors.
housing units for low and moderate-income
five possible residential uses of the
The full report, Future Uses of the
individuals and families.
Commodore.
Commodore Hotel, is designed to assist
Architect Michael McCulloch and
Housing for low income seniors was the
public and private investors considering
Structural Engineer Joe Gehlen were sub-
top recommendation of the CPW team.
development options for the Commodore
contractors on the project providing
Seniors housing was selected because
and other portions of the historic section of
architectural and engineering review of the
conversion costs were the lowest,
The Dalles' downtown. Copies of the
structural adequacy of the building for
projected revenues are high, and seniors
report are available from the University of
appear to be one of the groups most likely
Oregon Department of Planning, Public
to complement the expected growth and
Policy & Management for $10 per copy.
revitalization of the downtown historic
Oregon Futures is the newsletter of
Phone (503) 346-3635.
district.
the Community Planning Workshop
Combined hostel services and seniors
(CPW), in the Department of
Planning, Public Policy, and
housing was the second ranked
Inside Oregon Futures
recommendation of the CPW team. This
Management at the University of
Oregon. CPW provides planning
option recommended low-income senior
Page
and public policy experience to
housing on the first three floors. The
graduate and undergraduate students
youth hostel would have a separate
Past, Present, and Future
2
while assisting Oregon communities
entrance and be fully committed to
From the Director
3
traveler and recreation visitor needs. If
and organizations with development
Spotlight on Douglas County
4
issues and opportunities.
properly managed and maintained, revenue
from the youth hostel could be used to
Oregon Futures
Page 1
EVALUATION OF OPPORTUNITIES
FOR REVENUE-GENERATING PROGRAMS
EMPLOYING THE HOMELESS
FINAL REPORT
Submitted to:
Oregon State Community Services
Submitted by:
Community Planning Workshop
The Department of Planning, Public Policy
and Management
Hendricks Hall
University of Oregon
August 1989
EVALUATION OF OPPORTUNITIES
FOR REVENUE-GENERATING PROGRAMS
EMPLOYING THE HOMELESS
FINAL REPORT
Submitted to:
State Community Services
Submitted by:
Community Planning Workshop
The Department of Planning, Public Policy
and Management
119 Hendricks Hall
University of Oregon
Eugene, Oregon 97405
(503) 686-3635
Researchers:
Nancy Murphy Kincaid
Michael Farber
Michael Unger
Project Director:
Terry Moore
August 1989
TABLE OF CONTENTS
Page
SUMMARY
ii
CHAPTER 1
INTRODUCTION
1
1.1
PROJECT BACKGROUND
1
1.2
THE PURPOSE AND HISTORY OF THIS PROJECT
2
1.3
METHODOLOGY
4
1.4
ORGANIZATION OF THIS REPORT
4
CHAPTER 2
FRAMING THE PROBLEM; THE CHARACTERISTICS
AND NEEDS OF THE HOMELESS
5
2.1
INTRODUCTION
5
2.2
NEEDS OF THE HOMELESS
6
2.3
IMPLICATIONS OF OUR STUDY
8
CHAPTER 3
DEVELOPING BUSINESSES TO EMPLOY THE
HOMELESS AND PROVIDE REVENUE FOR
THE SHELTER
9
3.1
INTRODUCTION
9
3.2
RESULTS OF THE OPERATOR INTERVIEWS
10
CHAPTER 4
DIRECTIONS FOR THE FUTURE
23
4.1
FINDINGS
23
4.2
RECOMMENDATIONS
24
APPENDIX A
TECHNICAL MEMORANDUM #1
A-1
BIBLIOGRAPHY
A-20
APPENDIX B
INTERVIEWS OF PROGRAM OPERATORS
B-1
APPENDIX C
BCC CLIENT ANALYSIS
C-1
APPENDIX D
CHARACTERISTICS OF 32 PROJECTS RECEIVING
FEDERAL STEWART B. MCKINNEY ACT GRANTS
D-1
Homeless Programs
CP Workshop
August 1989
Page i
SUMMARY
Purpose
Communities nationwide are being forced to face the challenge of creating
solutions for homelessness. State Community Services (SCS) hired Community Planning
Workshop (CPW) of the University of Oregon Department of Planning, Public Policy
and Management to produce this study as a planning tool for service providers working
toward long-term solutions for homelessness. This report describes and compares
businesses that have been developed to help the homeless by providing jobs, generating
revenue for shelter services, or both.
Method
We conducted telephone interviews with managers of 23 programs sponsored by
18 agencies to find out what kinds of programs are being tried nationwide and how they
are doing. Project managers were asked for a detailed description of their project, a
client profile, a general idea of program costs and funding sources, and additional
comments that might be helpful for other groups considering similar projects.
Information from the interviews is compiled in tables and discussed at length in the text.
Detailed write-ups of the interviews are in Appendix B.
Results
Job referral programs are using aggressive outreach to private employers and
working cooperatively with state employment offices to place people in jobs. Contract
service businesses and businesses marketing recovered and recyclable materials are
providing revenue for homeless services and employment opportunities for clients. An
economic development approach to training skilled workers and stimulating community
revitalization is emerging in larger programs
Agency objectives and the availability of funding are the most important factors in
planning a business to serve the needs of the homeless.
o
Single objectives such as revenue for services or temporary jobs can be
achieved with traditional models of shelter service based businesses.
o
Long-term solutions require more complex programs that include serving
the multiple needs of clients.
To meet long-term needs, programs must include, either within their
programs or by referral, material and health support services, training in
job skills and social skills, and case management after job placement.
o
Combining job training and revenue generation in a single project probably
requires subsidy in the form of substantial donations or vocational
rehabilitation funds.
Homeless Programs
CP Workshop
August 1989
Page ii
Helping a person get out of the cycle of homelessness requires addressing the
whole person.
Job skills won't help a person who does not have transportation or lacks
the stability to stay on the job.
A stable income will not get an individual into permanent housing where
none is available.
Parents who have no access to child care have little chance of completing
training or keeping jobs.
The complex nature of creating effective programs is known to the people interviewed
for this study and they have developed solutions that reflect their objectives, budgets, and
commitment of staff time.
The newest and most promising approach toward long-term solutions to
homelessness is the public/private partnership. Contract services that fill a need that the
private sector is not filling, finding a labor pool for jobs that might otherwise remain
unfilled, or renewing a neighborhood that is both a home to at-risk clients and part of a
business's economic base are all types of partnership projects that are being developed.
Successful projects require multiple funding sources, careful market assessment,
and dedicated staff people.
Successful clients need material and moral support from the beginning to the end
of their participation in a job program.
Both project managers and clients need a method for follow-up after job
placement so that problems can be caught early, allowing programs to adjust to the
realities of clients' needs in their efforts to become independent.
Homeless Programs
CP Workshop
August 1989
Page iii
LOCATION OF RESEARCHED
HOMELESS PROJECTS
HIPP
Job Corps
Allied Serv.
Eug. Mission
York Bakery
Emmaus House
Samar tan . . Cap. Hill
.
Osage Init.
Restart
Baker Ind.
.
Just One Break
Cana Ind.
ARCH (rehab)
Queue-Up
St. Joseph Portals
Skid Row Devel.
U of O Community Workshop, 1989
HOMELESS EMPLOYMENT
CONTINUUM OF PROJECT OBJECTIVES
SINGLE
MULTI-
OBJECTIVE
OBJECTIVE
Baker Ind.
St. Joe's Kitchen
Restart
Skid Row Devel.
Cana Ind.
Emmaus House
Osage Ind.
Resources Unlim.
Burger-Up
Eug. Mission Recyc.
Corp. Cookie
HIPP (Seattle)
York Bakery
St. Joe's Store
Allied Serv.
ARCH Rehab.
Burnside Job Corps
Just One Break
Samaritan House
U. of O. Community Workshop, 1989
CHAPTER 1
INTRODUCTION
1.1
PROJECT BACKGROUND
The plight of the homeless is among this nation's most pressing and visible
domestic problems. Three-fourths of all voters in America say they would like to see
increased federal spending to aid the homeless. A majority of voters say they would be
willing to pay an additional $100 per year in taxes if the money would be used to help
the homeless (Mellman, 1988: 1). Officials at all levels of government are being called
on to respond to the crisis. News media have produced dozens of stories and articles
documenting the personal tragedy of homelessness.
Social service and government agencies, and community and church organizations
nationwide have been struggling to meet the day-to-day human needs of the homeless.
Generally, attempts to find long-term solutions have met with little success; the roots of
the problem lie deep in the social, political and economic structures of America. The
diversity of the homeless population and disagreement among agencies and advocates
make comprehensive solutions complex and costly. By most estimates, the number of
homeless individuals and, more recently, homeless families, continues to increase.
The experiences of Portland, Oregon, have paralleled those of the nation as a
whole. By some estimates, the Portland area's homeless population has grown to over
14,000 people (The Oregonian, March 20, 1989: B4). Efforts by the city and non-profit
organizations have taken a variety of forms including the cessation of demolition of
downtown housing, rehabilitation of Single Room Occupancy hotels (SROs), construction
of emergency and transitional shelters, substance abuse programs, and the recent
development of a 12-Point Comprehensive Plan for the homeless. Each attempt has had
positive results, but the problem far outstrips the solutions.
One Portland program in particular, the Burnside Job Corps, operated by the
Burnside Community Council (BCC), has attracted nationwide attention. The program
provides pre-employment assessment and training and placement of job-ready homeless
clients in both day labor and permanent employment positions with private businesses.
On a very limited budget, the Job Corps has achieved remarkable results since its
inception in 1987, placing thousands of homeless individuals in a variety of positions.
A second Portland program has a strong track record in addressing homelessness.
Since the early 1980s, the City of Portland and local non-profits have creatively financed
the renovation of hundreds of units of SRO housing for the use of low-income and
homeless people. Rental prices per unit range from $65 to $225 per month.
Homeless Programs
CP Workshop
August 1989
Page 1
1.2
THE PURPOSE AND HISTORY OF THIS PROJECT
In the winter of 1988, David Povey, faculty director of the Community Planning
Workshop (CPW) in the Department of Planning, Public Policy and Management at the
University of Oregon, and Dan Van Otten of State Community Services (SCS) began
discussions concerning homelessness in Portland and ways that CPW might be involved
in developing solutions to some aspect of the problem. Those discussions led to other
meetings with Lynne St. Jean, director of the Burnside Job Corps, and Sharon Nielson of
Central City Concerns (CCC). This brought about a number of ideas about what subset
of the problem could make the best use of CPW's resources.
One proposal in the fall of 1988 was to renovate a vacant four-story, forty-five
room hotel in the north area of downtown Portland for use as a combined SRO
transitional shelter and employment center. The location of the building coupled with a
significant amount of first-floor, storefront space, suggested this space could be used in
some profit-making capacity to subsidize the operation of the facility. This proposal was
tabled when the building was no longer available for sale.
That fact, and a rethinking of the nature and underlying difficulties facing
Portland social service agencies and the Burnside Job Corps, guided January 1989
discussions among CPW, SCS, and the Job Corps. Connections were explored between:
1.
The type and location of jobs that the Job Corps was able to find for the
homeless
2.
The types of homeless people most likely to succeed at such jobs
3.
The current and desired locations for emergency shelters and transitional
housing for the homeless
4.
The ability of the Burnside Job Corps, or any other social service agency,
to track the success of its programs for the homeless
The consensus reached was that it would be useful to all agencies involved if
CPW could:
1.
Design and develop a database system that would allow the Job Corps and
BCC to (a) attend to the needs of its clients more efficiently and to
evaluate its success in doing so, and (b) compare the location and type of
employment opportunities it provides with the location and type of people
whom it serves.
2.
Conduct such a comparison to determine the areas in Portland that BCC,
CCC, and other agencies should target for emergency shelters and
Homeless Programs
CP Workshop
August 1989
Page 2
transitional housing for the homeless.
3.
Comment on the type of for-profit activities that could be developed to
provide employment for the homeless and generate income for the social
services agencies providing services for the homeless.
CPW prepared a detailed work program for achieving these goals; SCS approved
and signed a contract with CPW in March 1989.
To increase our familiarity with the issues and information surrounding
homelessness while focusing the remainder of CPW's analysis, we developed a technical
memorandum (see Technical Memorandum #1, March 1989, in Appendix A of this
report) that reviewed current literature and government studies to describe past and
current problems of homelessness in the nation and in Portland in particular. This
research lead to several broad conclusions:
1.
Homelessness was, in large part, a function of a lack of income and "highly
correlated to a lack of employment and employability."
2.
The development of additional housing (emergency and transitional
shelters) in Portland was more limited by economic and political concerns,
than by technical matters such as proximity to social service agencies and
bus routes.
3.
Accurate planning for the provision of homeless services by Portland social
service agencies is frustrated by lack of knowledge of the personal
characteristics, demographics, skills, and background of the homeless.
As a result of these conclusions, it was agreed that CPW would eliminate the
locational analysis portion of the work program and instead focus on the feasibility of
creating an enterprise providing employment for the homeless and generating operating
revenue for the operation of shelters. There are several potential advantages to a shelter
developing a "spin-off" business. Surplus revenues from the business could help defray
the costs of supplying shelter. Job and wage-making opportunities for the homeless, in a
somewhat protected environment, would be increased. Job training and employment
readiness programs could be instituted to prepare clients for long-term employment with
local, private firms.
The conclusions of the Technical Memorandum reconfirmed the desirability and
need for developing a computer system for managing information about Job Corps
clients. CPW would design a system using IBM-compatible computer hardware and
Dbase III Plus software and compose a training manual for easy use of the system. CPW
would also perform an analysis of records of previous Job Corps clients. A description
of the computer system and an instruction manual is contained in a separate report to
the Job Corps.
Homeless Programs
CP Workshop
August 1989
Page 3
1.3
METHODOLOGY
The revised focus of the project and this report is an evaluation of the feasibility
of developing businesses that will employ the homeless and generate revenue for shelter
services. Our method had six steps:
1.
Develop criteria for evaluating the efficiency, feasibility, and fairness of
programs we discover through a nationwide search of businesses with
similar objectives
2.
Design a standardized interview format to guide telephone interviews of
managers and operators of such businesses
3.
Conduct interviews of operators of these businesses
4.
Summarize the results of each interview in 1 - 3 pages, including an
evaluation of each program's performance on each criterion
5.
Use information about randomly selected Job Corps clients to test for any
correlations among the personal characteristics, skills and work experiences
of the homeless labor pool
6.
Combine the results of "4" and "5" to recommend the types of enterprises
most likely to succeed in Portland
1.4
ORGANIZATION OF THIS REPORT
In Chapter 2, we frame the problems faced in providing services to the homeless.
Incorporating the findings from the analysis of the Job Corps' previous clients, this
chapter examines and summarizes the characteristics and needs of the homeless.
Chapter 3 focuses on the results and general conclusions we derived from the interviews
with the program operators. The details of the interviews are included in Appendix B
of this report. Chapter 4 explores possible directions for the future based on our
findings.
Appendix A is the full text of Technical Memorandum #1. Appendix B provides
details of the interviews of program operators, summarizing 23 projects sponsored by 18
organizations nationwide. Appendix C reports the findings from the analysis of BCC
clients. Appendix D summarizes the characteristics of 32 projects receiving federal
Stewart B. McKinney Act grants.
Homeless Programs
CP Workshop
August 1989
Page 4
CHAPTER 2
FRAMING THE PROBLEM; THE CHARACTERISTICS
AND NEEDS OF THE HOMELESS
2.1
INTRODUCTION
Attacking the problem of homelessness has proven to be extremely difficult.
Homelessness has become imbedded in the political, economic and social structure of
the United States since the early days of the nation. The last decade has seen enormous
increases in the homeless population resulting from federal budgetary and social policies.
Furthermore, homeless persons are of such diverse background and experiences, that
programs designed to help them are often rendered inefficient and ineffective, at best,
and inhuman, at worst.
The characteristics and needs of the homeless, whether on a national or local
scale are not easily described and categorized. There is no one description of "the
homeless." The homeless are actually an enormous variety of individuals representing
very different ages, ethnicity, mental capabilities, family circumstances, work experiences,
geographic regions, and health. Homeless people today are as likely to be employed,
single women with children as transient single males, who once composed the
overwhelming majority of the homeless population.
Numerous attempts have been made to quantify and classify the homeless
population, both on the national level and in Portland. Results of these studies vary
widely depending on who is counting. Different definitions of who is considered
homeless are utilized. Methodological inexactness is apparent in each study, perhaps
biased sometimes by a particular agency's interests. For example, on a national level,
the Department of Housing and Urban Development estimates there are only 200,000 -
300,000 homeless people. Advocates and organizations have estimated the population as
high as 2 - 4 million (Hombs and Snyder, 1982). In Oregon, estimates of the total
population of homeless in the state range from 10,000 to 27,000. Estimates for Portland
range from 2,000 to 14,000.
The profile and characteristics of the subgroups of the homeless population also
vary widely. On the national level, the traditional single adult transient population still
comprises the largest subgroup among the homeless. They are more likely to be men
than women (56% men compared to 25% women). The remaining 19% are adolescents
or families with children, although some studies estimate that families make up
approximately 28% of the total population (Committee on Health Care for Homeless
People, 1988). The average age is between 34 and 37. Fifty-five percent are high school
graduates. Up to 45% suffer from alcohol abuse compared to a national average of 11 -
15% for men and 2 - 4% for women (whether alcohol abuse is a cause of homelessness
or a symptom of deeper problems is not known).
Homeless Programs
CP Workshop
August 1989
Page 5
Of the adult transient population, 25 to 40 percent are identified as mentally ill
(Bacharach, 1984). Fifty percent of the homeless population are veterans of war, the
majority being from the Vietnam War (Goodwin, 1986). Many of the Vietnam veterans
suffer from Post Traumatic Stress Disorder (PTSD) causing depression, anger and
alienation.
Up to 70 percent of homeless youth come from abusive homes, with no family to
whom they can return (June Bucy, 1988) Youth were often first removed from their
families by authorities who deemed the family abusive or neglectful. The youths then
were placed in foster homes and eventually ejected or emancipated. Because of their
frequent moves, homeless youths are often excluded from attending school; most have
not completed grade school.
In Portland, review of relevant literature shows that estimates of the subgroups
are wide-ranging. Local advocates believe the 1988 Metropolitan Community Action
Agency Draft Plan contains the most reliable estimates of the homeless population.
Table 2.1
PORTLAND HOMELESS POPULATION
Total Population (Portland)
11,201
Single men
26%
Single women
10%
Couples without children
4%
Families
52%
Youth
5%
Elderly
2%
Source: Metropolitan Community Action Agency Draft Plan, 1988
Why estimates of the proportion of the population composed of "Families" are so
high (52 percent for Portland compared to 10 - 28 percent nationwide) is unclear.
However, other studies have estimated males make up 85 percent of the homeless
population in Portland (Blake, 1987).
2.2
NEEDS OF THE HOMELESS
The wide-ranging estimates and classifications of the homeless population
subgroups make the determination of needs all the more difficult. Additionally, there is
a lack of objectivity in determining the needs. Each social service provider and
government decision-maker has biases that are apparent in the solutions they choose to
Homeless Programs
CP Workshop
August 1989
Page 6
advocate. For example, a county official may decide the major need of the homeless is
long-term housing instead of psychological counseling because counseling is paid from his
department's budget, while housing is the responsibility of the private sector and the
state housing authority.
In general, an on-going "chicken or egg" debate exists about the needs of the
homeless. The name "the homeless" suggests the primary need is "a home." Many
advocates believe that finding a home is the first step towards re-entry into mainstream
society for many individuals; once a stable and safe place to live is found, then the
previously homeless person can turn their attention to other matters such as schooling
for their children and job training for themselves.
On the other hand, there are those advocates and planners who believe "the
homeless" is a misnomer which ought to be changed to the "jobless" or "incomeless." The
name "homeless" is a euphemism designed to appeal to the guilt and sensibilities of
America's middle class and its decision-makers. Obtaining a source of income is the
primary need of these people so they can afford to rent or buy housing, procure health
care, and food in a society not disposed to providing it free. Opportunities need to be
developed to provide meaningful and appropriate work, at a living wage for these
downtrodden people who have been cut out or have fallen out of the economic system.
The fastest growing subgroup of the homeless population has been families
(Committee on Gov't. Operations, 1986). The typical family is likely to be headed by a
woman in her late-twenties with 2 to 3 children, receiving Aid to Families with
Dependent Children (AFDC), and has chronic economic, educational and social
problems, often coming from a domestic violence situation. A scarcity of low-income
housing is seen as a primary cause of homelessness for families with a pressing need for
the provision of shelter spaces for the entire family (Per. Comm. with Marsha Ritzdorf,
Prof. of Urban Planning, University of Oregon, Feb., 1989).
The primary need and want of single homeless males is some type of employment
(Speech by Prof. Peter Marin, Santa Barbara State Univ. at Univ. of Oregon, March,
1989). Job training and employment at decent wages are seen as the keys to ending
their homelessness and, perhaps, to overcoming their other social problems. The
assumption is that increased and steady income will allow people to obtain housing and
stabilize their lives.
This employment strategy is targeted not only at single males. Two-parent and
women-headed families need employment at least as much as single males. However,
because of the complexity and costs of meeting the needs of families (lack of mobility,
child care, schools and education, etc.) the job strategy has often proved more effective,
easier to conduct, and less expensive for single adults (phone conversation with Arnie
Godmintz, Director of Just One Break, Sacramento, CA., May 1989).
Other identifiable segments of the population have their own needs. Veterans of
the Vietnam War often require intensive counseling and rehabilitation because of PTSD.
Alcohol and drug abusers also require counseling and therapy before they can be
Homeless Programs
CP Workshop
August 1989
Page 7
competent to hold a permanent job. Homeless youth are believed to require housing of
one sort or another, better case management, targeted job training and placement,
criminal rehabilitation, and reintroduction into some type of educational setting (City of
Portland, Bureau of Human Resources, April, 1986).
Elderly people, making up less than 10 percent of the homeless population
require a broad spectrum of health care services. Safe shelter, often away from the mass
emergency shelters with their perceived dangers from younger, stronger residents, is a
primary need (Roth, 1985).
2.3
IMPLICATIONS FOR OUR STUDY
The obvious symptom of homelessness is lack of a home; the underlying cause,
however, is often economic. People do not have money to afford housing, and they lack
the training, skills, or opportunity to get jobs that would get them that money. While we
recognize the many other factors that contribute to the problems of the homeless, our
research suggests that economic issues are, at least, among the most important. Our
research also suggests that as a long-run solution to the problems of the homeless,
income from work is preferable to income from entitlement programs. Thus, we chose
to direct our study at ways in which the homeless might be employed in meaningful work
that would (1) provide income, (2) provide training, and (3) perhaps provide revenues to
finance other important work being done at shelters. As a subset of our analysis we
develop a computerized data management system for BCC that will help it match the
homeless labor pool to the appropriate job opportunities.
¹As a part of its original contract, CPW proposed to analyze the interrelationships
between the types of jobs that BCC was able to find for the homeless and the characteristics
of those employed. CPW expected to do this analysis using records kept by BCC. Though
this type of analysis was sound in theory, the actual records were found to be inadequate
for the type of analysis proposed because (1) the client files and summary sheets lacked
specific job placement and job skills, and (2) information on employers was not available.
The database system which CPW is designing for BCC will enable such analysis to be
conducted in the future. Appendix C contains the completed analysis of BCC clients.
Homeless Programs
CP Workshop
August 1989
Page 8
CHAPTER 3
DEVELOPING BUSINESSES TO EMPLOY THE HOMELESS
AND PROVIDE REVENUE FOR SHELTER
3.1
INTRODUCTION
The traditional model for shelter-run business is a business that uses unskilled
labor to process free or inexpensive materials to produce inexpensive products. While
this type of business does make practical use of ready resources, providing essential
services or recovering resources that might otherwise be wasted, it seldom promotes job
skills that clients need to get out of the cycle of poverty and homelessness.
Shelter and social service agencies around the country are coming up with creative
ideas for businesses which increase the earning potential for unskilled workers and the
potential for skill building. These businesses require more sophisticated resources than
the traditional second-hand store/recycling type business that is typical of earlier efforts.
To evaluate the effectiveness of a variety of job programs and shelter-based
businesses we interviewed 18 organizations operating or proposing over 23 programs that
had as their objectives job training and placement for the homeless and/or generation of
revenue for shelter or feeding programs for the homeless. A write-up of each interview,
including a detailed description, a client profile, project costs and funding, and additional
comments is included in Appendix B.
Our proposed methodology assumed more similarities between programs than we
actually found. Contacts were not interviewed from a list of specific questions, but were
asked general questions and allowed to emphasize those issues that were of particular
concern to them. If we had used a structured interview the results might include more
items of information, but we believe the unstructured interview was valuable for allowing
the individuality of programs to take precedence. Some programs work for job placement
only; others for revenue only. Some offer a very broad range of services within their
agencies while others only deal with one service and may or may not coordinate other
client services with other agencies. Most are the efforts of homeless shelters and feeding
service providers, but two very ambitious projects are the work of large, private
corporations. Some deal with clients numbering in the hundreds; others may provide
employment aid to only a few at a time. As a result, it is difficult to compare program
start-up or per-client costs directly. It is also difficult to compare effectiveness of
programs, particularly because many are just getting started.
We begin the next section with some general observations on the interview
information collected. We then discuss the programs by business type. Finally, we
compare programs in terms of their age, stated objectives, costs, funding sources, client
services and material support offered, and observable results.
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August 1989
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3.2
RESULTS OF THE OPERATOR INTERVIEWS
3.2.1
GENERAL OBSERVATIONS
The detailed description included business type and size, relevant market
conditions, number of clients served, and an estimate of the success of placement in
permanent jobs. The size of the projects varied considerably, so direct comparison
between projects is difficult. Most contacts were happy to have the opportunity to
discuss their projects, and the description was the easiest part to establish.
Client profiles are relatively brief, compared to the other sections of the
interviews. Clients are generally shelter residents, or other at-risk persons referred by
shelters and social service agencies. Differences in how programs described special
problems of their clients was largely semantic and supported the findings of Technical
Memorandum #1. Social needs of clients included attitude improvement, emotional
support, stability, and recreational opportunities. Service needs included material
support such as clothes and grooming aids in addition to food and housing. Drug and
alcohol problems, common among a large percentage of clients, also require attention.
Most successful programs included at least a referral to drug counselling. Some require
full participation in rehabilitation programs or a contractual agreement to remain drug-
and alcohol-free to qualify for the work program.
Program costs and funding vary greatly. Some programs include job referral as an
adjunct to their shelter screening process, or incorporate low-skill job training in the
utilization of shelter residents for operations and maintenance of shelter facilities. On
the other end of the spectrum, economic development approaches to employ the
homeless require acquisition, building or rehabilitation and maintenance of large
buildings, and the creation of entire new businesses. Funding for the former type of
program can come from the shelter providers' operating budget and small grants.
Funding for the latter requires major funding, probably in the form of major state grants
or private corporate donations, or both. One point was made by all contacts, however:
funding needs to be solicited from all possible sources. The fact that charitable giving
goes through phases that can be described as a function of "fashion" makes all sources
fickle at some times, while the needs of the poor do not go away just because
homelessness may not be in the headlines at any given time.
Additional comments were solicited to help anticipate problems for organizations
that might try to start similar projects, and to emphasize ideas that seem to be working
particularly well. A recurring comment was that homelessness has to be addressed as a
multi-faceted problem. Housing, jobs, and medical/mental health support must all be
available for long-term effectiveness. Another important point is that the private sector
needs to be brought into the process to get skilled jobs training and placement. Child
care was a serious need that was not being filled in most programs. Finally, providing
structure and practical experience with routines and responsibility is essential, but so is
Homeless Programs
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August 1989
Page 10
the flexibility to allow for different learning capabilities.
3.2.2
TYPES OF PROGRAMS
The discussion of program types moves from those having relatively low start-up
costs, to more complex programs that require increasing commitments of professional
staffing or capital.
Job referral and placement programs are logical extensions of any social service
agency that is putting at-risk people through screening for other services. To be
effective, the agency must have at least one full-time staff person with an understanding
of business language and the will to aggressively pursue cooperative employers who will
help secure significant work for the clients. Burnside Community Council's Job Corps
was cited by several contacts as a model program.
Traditional recovery and recycling enterprises usually rely on donated second-
hand goods and newspapers for their resource base. Proposed extensions of that type of
enterprise would require more aggressive collections and marketing, but could use
existing facilities, or be started up at relatively low cost. Skid Row Development
Company's bank-bag recycling operation is one example of a related service that is
probably not currently being pursued in Oregon. Off-sale clothing is another possibility
that is a step above second-hand clothing sales. It requires the purchase of merchandise,
but at relatively low cost. With the cultivation of clothing manufacturers who might
benefit more from deductible charitable donations than from selling seconds and out-of-
season merchandise at a loss, costs could be reduced. The St. Joseph Center Thrift
Store and Eugene Mission's newspaper recycling business are examples of successful
programs based on this model. Both have the primary objective of funding shelter.
Job training programs that will provide skills with good earning potential require
considerable funding and/or cooperation with existing educational institutions. The
Opportunity School project, which trains nurses' aides in conjunction with an existing
night school, is a good example of a cooperative relationship. Osage Initiatives (Osage),
in its economic development approach to employing the homeless (discussed below), has
included educational non-profit organizations under its roof, creating a "one-stop"
opportunity center for clients. Exemplary programs whose staff provide training for
skilled jobs include Action to Rehabilitate Housing (ARCH), York County Shelter
Bakery and Emmaus House.
Service businesses may be started up with little more than a truck and a few tools.
One unique approach to creating service business is Restart of Kansas City, which makes
loans to homeless people to start their own businesses. They estimate that a revolving
loan program starting with $50,000 could be self-supporting. Restart also runs a lawn-
care and snow-removal service that has been operating successfully on a small scale for
several years. Other programs have started their own service businesses such as Osage's
parking-lot-maintenance service and Cana Industries' mailing service. The job skills for
Homeless Programs
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August 1989
Page 11
some services, such as the two mentioned above, can be learned without specialized
training programs, but the consequence is that job skills learned have limited earning
potential.
Service businesses with more potential for providing upward job mobility for
clients will require both professional training and aggressive marketing strategies.
Emmaus House's wood shop project and ARCH's housing-rehabilitation program are
good examples of programs that fill an important market niche and provide training for
well paid job skills.
Food service programs offer an opportunity to combine a service that is required
by homeless clients with an opportunity to teach job skills. Many shelters already
include residents in the tasks of preparing meals. By qualifying a facility as a vocational
rehabilitation site, the kitchen can receive state vocational rehabilitation funds for
training clients for qualifying jobs. One shortcoming of this type of arrangement is that
food service jobs often do not pay well. For the unskilled worker, however, this may be
a good start to self-sufficiency. Waitering, catering, cooking and dish washing are well-
paid jobs in some markets, and kitchen assistance can be a good background for
cultivating those higher level skills. York County Shelter's Bakery is developing the
capacity to train food service workers for higher skilled positions in the food service job
sector in response to changes in the marketability of particular food-service jobs.
The economic development approach is the job creation strategy that requires the
most complex relationship between the private sector and service providers, but
generates the most money. The Osage Initiative, the one of two ambitious programs in
this study initiated by the private sector, is the most dramatic example of an effort to
combine private enterprise and social service programs to create jobs and job skills. Skid
Row Development Corp. is another example of a public/private partnership that creates
jobs and is helping to revitalize a blighted area of Los Angeles. In both cases, for-profit
businesses are encouraged to hire the homeless. In the former, private industry benefits
from a pool of labor for low-skilled, one-time jobs. In the latter, a large shelter system
benefits from rental revenues from businesses who have agreed to hire at-risk local
residents as a part of their lease agreement. Service providers who would like to pursue
this type of program are well advised to contact Skid Row Development Corporation for
literature about their funding arrangements.
ARCH is an interesting hybrid of the economic development and job training
program approaches. The economic development objective is to maintain the low-cost
housing inventory of Washington, D.C.. Job trainees in the building trades are not only
helping themselves to be independent, they are creating housing opportunities for other
at-risk community members. The program sponsor, Potomac Electric Power Company
(PEPCO), is addressing long-term economic concerns by trying to stabilize the housing
base of its customer community.
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August 1989
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3.2.3
COMPARISON OF PROGRAMS
Though our sample is small, the age of programs appears to be indicative of the
history of community efforts to solve the problems of homelessness (Table 3.1). Of the
programs observed in this study, St. Joseph Thrift Store (1976) and the Eugene Mission
newspaper recycling program (1960) have the longest histories, both programs
successfully supporting shelter services with traditional recycling businesses.
In the late 1970s, two programs were started that used ideas that would become
important precedents for later efforts. Baker Industries started a non-profit organization
that employed handicapped and homeless individuals in temporary services for business.
Skid Row Development Corporation (SRDC) incorporated to implement an economic
development approach employing homeless and at-risk people to support shelter services
and to revitalize the Skid Row Area of Los Angeles.
The mid-1980s saw the beginning of efforts to create businesses that combined job
training and the prospect of revenues either for shelter services or for the training
program. Among the businesses that have achieved one or both of these goals are a
bulk mailing business (Cana Industries), a bakery (York County Shelter), Corporate
Cookie retail snack shop, Restart's lawn and snow-removal services, Burger-Up fast food
restaurant, and SRDC's recycling and street maintenance businesses. Programs whose
emphasis is job placement have begun to recognize the need for job skill development
for clients to become independent of support services. The other notable change in
recent years is the evolution of public/private partnerships trying to create long-term
solutions to unemployment among the homeless. The newest programs discussed are
pilot projects funded by the Stewart B. McKinney Act that include skilled job training,
job placement and some type of case follow-up.
Program objectives (Table 3.1) observed were (1) either temporary or permanent
placement in either unskilled to low-skilled jobs or skilled jobs; (2) revenue for shelter or
feeding services, for the job training program, or for expansion of the business effort, and
(3) long-term placement in housing. In considering revenues applied to homeless
services, shelter and feeding services were combined because a few agencies sponsoring
programs provide both.
Some programs directed to temporary placement in jobs have placement as their
primary objective. Allied Services, Resources Unlimited, and SRDC's two service
businesses see temporary placement as an opportunity for clients to get on their feet and
regain their ability to take charge of their own lives. Other programs are directed to
both temporary and permanent placements; temporary placements are considered "stop-
gap" and permanent placement is the primary objective. Programs that have formal
training programs generally prefer to plan in terms of permanent placement for all
clients. The definition of "permanent placement" varies, usually referring to a placement
lasting at least several months.
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August 1989
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Program objectives for targeted job skill levels vary. Many programs have made
a choice between unskilled or low-skilled job objectives and skilled job training and
placement. Temporary service approaches tend to cultivate low-skilled job markets.
Kitchen assisting and other food-service programs prepare people for a relatively low-
skill job sector. Service businesses such as maintenance services and Cana Industries'
bulk mailing service also promote low-skilled placements. This approach is a legitimate
choice for developing income opportunities quickly, on a limited budget, and for clients
who are unable to learn complex tasks. The food-service program idea has the added
advantage of preparing clients for jobs that are likely to be available in all communities.
Job placement programs are generally directed toward both skilled and unskilled
placements. Shelter-based programs that include some skill building also tend to
cultivate placements at a variety of skill levels. This approach provides flexibility that
helps both those clients who want to work towards long-term stability and those who
either prefer or are somehow limited to short-term measures.
Programs that have skilled placements as a primary objective are committed to a
high level of training within the program. ARCH's building-trades program and
Samaritan House's nurses' aide certification program are directed to getting people into
skilled jobs. Other programs that train clients for skilled jobs include the shelter-based
Emmaus House's wood shop business and the private-sector sponsored Osage Initiative.
Seven projects studied have raising revenue for shelter or feeding services as a
primary goal. The St. Joseph Center Thrift Store, the Eugene Mission recycling business,
and the three SRDC projects are directed to raising revenue for support services for the
homeless only. Cana Industries and Burger-Up both hope to support shelter services and
their job training programs with project revenues.
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August 1989
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Table 3.1
PROGRAM OBJECTIVES
Program Description
Program Objectives
(Program Type)
Starting Date
Job Placement
Revenue
Housing
Just One Break
1986
T,P,LS,SK
(Job Placement Service)
Allied Services
Ended
T,LS,SK
(Day Labor Referral)
St. Joseph Center
Proposed
P,LS,SK
(Meal Program Training)
St. Joseph Center
1976
S/F
(Thrift Store)
Baker Industries
1979
T,P,LS,SK
TR,Ex
(Temp. Services)
Homeless Initiative
1988
P,LS,SK
(Training and Placement)
Eugene Mission
1960
LS
S/F
(Newspaper Recycling)
Portals CMI Services
1986
P,LS
TR
(Corporate Cookie)
Resources Unlimited
1988
T,LS
(Temporary Placement)
Quene-Up
1988
T,P,LS
S/F,TR,EX
X
(Burger-Up Restaurant)
Emmaus House
P,LS,SK,TR
X
(Wood Shop/Kitchen)
Restart Inc.
1984
T,SK
X
(Lawn, Snow Removal)
Restart Inc.
1984
P,LS,SK
X
(Job Referral Placement)
ARCH
1988
P,SK
TP
X
(Building Trades Train.)
Cana Industries
1984
T,P,LS
TP
X
(Bulk Mail Service)
York County Shelter
1985
P,LS,SK
SH,TP
(Bakery)
Osage Initiative
1988
T,P,LS,SK
SH,TP
X
(Eco-Dev. & Soc. Serv.)
Samaritan House
1988
P,SK
X
(Nurses Aide Training)
Skid Row Development
1978
P,LS,SK
S/F,EX
X
(Economic Development)
Skid Row Development
T,LS
S/F
X
(Recycling)
Skid Row Development
1985
P,LS
S/F
X
(Broadway Maintenance)
Cap. Hill Com. Service
Proposed
T,P,LS
(Food Service Training)
Source: Telephone Interviews
Job Placement: T= Temporary, P = Permanent, LS = Low Skilled, SK = Skilled
Revenue: S/F: = For Shelter/Feeding, TR = For Training Program, EX = For Expansion
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Other projects are trying to raise revenues to support job training programs.
Corporate Cookie, Restart's lawn-care and snow-removal service, ARCH, and Cana
Industries intend for all their surplus revenues to provide ongoing funding for their job
training programs. Baker Industries, Burger-Up, and the Osage Initiative expect revenue
to fund training programs and future business expansion.
A number of programs also stated that permanent placement in housing was an
important objective.
Program costs were not available for all programs. Some sample figures along
with estimated full-time equivalent staffing requirements for several programs are
included in Table 3.2.
Table 3.2
PROGRAM COSTS
Program Description
(Program Type)
Start-Up Costs
Annual Budget
Staff (FTE)
Just One Break
$200,000
3.5
(Job Placement Service)
St. Joseph Center
$500,000
2.5
(Meal Program Training)
St. Joseph Center
$60,000
3.5
(Thrift Store)
Baker Industries
$50,000
$200,000
3.0
(Temp. Services)
Homeless Initiative
$650,000
8.5
(Training and Placement)
Eugene Mission
5.0
(Newspaper Recycling)
Portals CMI Services
$100,000
(Corporate Cookie)
Quene-Up
1.5
(Burger-Up Restaurant)
Restart Inc.
$50,000
(Lawn, Snow Removal)
Cana Industries
$247,000
(Bulk Mail Service)
York County Shelter
$50,000
3.0
(Bakery)
Source: Telephone Interviews
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August 1989
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Table 3.3 lists funding sources for all programs studied. Three new programs
receive support from the federal government in the form of Stewart B. McKinney grants.
Several programs qualify for and receive state vocational rehabilitation funds. Four very
different programs receive support from their city or county governments: the Homeless
Initiative job placement service, the private utility sponsored ARCH program, the York
County Shelter Bakery, and SRDC.
Most shelter service based programs are started and operated with funds from the
shelter budget. Shelter service based programs include:
St. Joseph Center - thrift store and restaurant
Eugene Mission - newspaper recycling business
Corporate Cookie - snack restaurant
Resources Unlimited - temporary job placement
Burger-Up - fast food restaurant
Emmaus House - wood shop and kitchen
Restart, Inc. - job service, yard service, small business incubator project
York County Shelter - bakery
Samaritan House - nurses' aide training
Skid Row Development Corporation - economic development, street
maintenance, recycling
Capitol Hill Community Services - food service
Nine projects were started or operate with funds from the service agency's budget.
Three have taken out loans to get projects going. Seven are using project revenues to
support their projects or other services.
Most projects have at least some grants or donations from private sources.
Shelter service based projects have support from churches, businesses, individuals, and
foundations. Support from private business is especially evident in the Osage Initiatives
and ARCH projects. Projects that might be called public/private partnerships include:
Homeless Initiative Pilot Project - training and placement
ARCH - housing rehabilitation, building trades training
Osage Initiatives - economic development, education programs, job
placement
SRDC - economic development, service businesses
Business contributions were significant in getting several of the business projects
started. For example, Burger-Up started with a $1.00 per year lease and donated kitchen
equipment.
Respondents frequently cited the need to combine all possible funding sources to
create successful programs. Most of the programs studied have three or more funding
sources.
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August 1989
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Table 3.3
PROGRAM FUNDING SOURCES
Program Description
(Program Type)
Government
In-House
Donations
Just One Break
so
M
(Job Placement Service)
Allied Services
SO,L
(Day Labor Referral)
St. Joseph Center
SV
SO,L
(Meal Program Training)
St. Joseph Center
L,RV
I,F
(Thrift Store)
Baker Industries
RV
C,B,I
(Temp. Services)
Homeless Initiative
Mc,C
so
F
(Training and Placement)
Eugene Mission
so
C,B,I,F
(Newspaper Recycling)
Portals CMI Services
SV
F
(Corporate Cookie)
Resources Unlimited
SV
RV
B
(Temporary Placement)
Quene-Up
C,B,I
(Burger-Up Restaurant)
Emmaus House
SV
F.M
(Wood Shop/Kitchen)
ARCH
Mc,SV,C
B
(Building Trades Training)
Cana Industries
SO,RV
C,I,F
(Bulk Mail Service)
York County Shelter
SV,C
so
(Bakery)
Osage Initiative
L
C,I
(Eco-Dev. & Soc. Serv.)
Samaritan House
Mc
RV
(Nurse's Aide Training)
Cap. Hill Comm. Services
RV
(Food Service Training)
Source: Telephone Interviews
Government: Mc=McKinney Grants, SV=State Voc. Rehab., C=City/County
In-House: so =Sponsor's Organization Budget, = Loans, RV = Project Revenues
Donations: CH = Church, B =Business, I =Individuals, = Foundations, M = Direct Mail
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August 1989
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Client services offered by the various programs are summarized in Table 3.4.
Clients for six programs are referred by outside agencies, implying that all the other
programs refer clients from within. Several programs have a preliminary screening
procedure to determine eligibility for program participation. Preliminary screening, as
used here, means screening for factors related to employability, including such
considerations as previous experience, literacy, record for retaining a job, and specific job
skills. Some programs also screen for psychological factors.
Most job programs that involve training include some type of social skills training.
These include personal hygiene and basic communication skills. Job interview skills are
often included. The Samaritan House program includes some family dynamics training
for clients with children. Many programs teach responsibility by keeping people on
schedules or making personal contracts for desirable behaviors.
Deficient reading and writing abilities are limitings factor for many clients. The
Homeless Initiative and Osage Initiative both offer basic literacy and English-as-a-
Second-language classes.
Training for specific job skills is the predominant type of training offered. Most
of the businesses offer on-the-job training. Osage, the Homeless Initiative, and
Samaritan House include some classroom teaching in their programs.
Counseling is considered by most respondents to be a vital part of any successful
attempt to get clients out of the cycle of homelessness. Ten programs refer participants
to counseling programs outside of their organization. Four programs conduct employer
follow-ups after job placements to see if clients are doing well and to determine whether
further client counseling is needed. Two programs, Resources Unlimited and Cana
Industries, include post-employment counseling to provide peer support for ongoing
success in the job. Most programs expressed a need for such counseling, but did not
have adequate funds to do it.
Drug and alcohol problems are one of the largest factors contributing to
homelessness. Five programs include the requirement that participants must remain
drug- and alcohol-free in order to participate, and either provide related counseling or
have a referral agreement with counseling programs in other agencies.
Material support (Table 3.4) for the homeless is the original purpose of most
sponsoring agencies studied. With the exception of Osage Initiatives, and the two
temporary services programs, all the sponsoring agencies of ongoing projects either
provide housing or require participants to be in shelter. Several of them also provide
some meals. Only two programs provide child care at this time, but several others
expressed a desire to provide child care and after-school care. At least four programs
provide clothing and other incidentals. Only two provide health care. The Homeless
Initiative provides transportation. Several programs stated that transportation was the
greatest limiting factor to making the best use of their available job market.
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August 1989
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Table 3.4
CLIENT SERVICES PROVIDED
Program Description
Client Services
(Program Type)
Client Type
Training
Counseling
Support
Just One Break
SH,Mp
PS
RP
H
(Job Placement Service)
Allied Services
Mp,DA
PS
RP
(Day Labor Referral)
St. Joseph Center
M,F
JS
H
(Meal Program Training)
Baker Industries
SH,H
S,JS
RP,F
(Temp. Services)
Homeless Initiative
SH,DA
PS,S,L
RP
H,M,CC,CL,HT,T
(Training and Placement)
Eugene Mission
SH,Mp
SS
H,M,C
(Newspaper Recycling)
Portals CMI Services
CMI
F
H
(Corporate Cookie)
Resources Unlimited
CMIp
RP,F,PE
(Temporary Placement)
Quene-Up
SS,JS
H
(Burger-Up Restaurant)
Emmaus House
Mp,MNp
PS,S,JS
H,M
(Wood Shop/Kitchen)
Restart Inc.
SH
(Lawn, Snow Removal)
Restart Inc.
SH
JS
RP,F,PE,DA
(Job Referral Placement)
Action to Rehab Com. Housing Fe,MN
PS,SS,JS
RP,F,DA
H
(Building Trades Train.)
Cana Industries
SH,Wp
SS,JS
RP,PE
H,HT
(Bulk Mail Service)
York Cty. Shelter
H
PS,SS,JS
H,C
(Bakery)
Osage Initiative
SH
PS,SS,L,JS RP
CC
(Eco-Dev. & Soc. Serv.)
Samaritan House
SH,W,F
PS,JS
H,C
(Nurses Aide Training)
Skid Row Development
H,C
(Economic Development)
Skid Row Development
SH,M,W
SS,JS
DA
(Recycling)
Skid Row Development
SS,JS
DA
(Broadway Maintenance)
Source: Telephone Interviews
Client Type: SH=Shelter Res., M = Men, W = Women, =Family, DA =Drug/Alcohol Problems
CMI = Chronically Mentally III, Primarily, e = Exclusively)
Training: PS = Preliminary Screening, SS = Social Skills, L = Basic Literacy/ESL, JS = Job Skills
Counseling: RP = Ref./Place., F = Employer PE = Post Employment, DA = Drug/Alcohol
Support: H = Housing, M = Meals, CC=Child Care, CL = Clothes, HT = Health Care, T = Trans.
Homeless Programs
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August 1989
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Results of the projects efforts that had measurable results available are
summarized in Table 3.5. Projects that focus on job placement and referral make the
highest number of placements. When training is included in the program, the number of
placements is lower, but the prospects of an individual completing the program and
staying in the labor force is ostensibly higher. Where the program focuses on generating
income, the job training and placement components become quite small.
Table 3.5
NUMBER OF CLIENTS IN PROGRAM AND INCOME GENERATED
Program Description # of Clients/Yr. Plac./Yr. % of Clients Revenue To Support:
Est
(Program Type)
in Training
in Perm. Jobs
Shelter/Job Program Income
Just One Break
870
62%
(Job Placement Service)
St. Joseph Center
SH
$33,000
(Thrift Store)
Baker Industries
40
40
(Temp. Services)
Homeless Initiative
225
65%
(Training and Placement)
Eugene Mission
SH/JP
$100,000
(Newspaper Recycling)
Portals CMI Services
17
40
JP
(Corporate Cookie)
Resources Unlimited
18
40
JP
(Temporary Placement)
Quene-Up
2
SH
$100,000
(Burger-Up Restaurant)
Emmaus House
JP
(Wood Shop/Kitchen)
ARCH
93
45
(Building Trades Train.)
Cana Industries
6
35
(Bulk Mail Service)
York County Shelter
4
SH\JP
$70,000
(Bakery)
Osage Initiative
12
165
JP
(Eco-Dev. & Soc. Serv.)
Samaritan House
40%
(Nurses' Aide Training)
Skid Row Development
SH\JP
(Economic Development)
Source: Telephone Interviews
Homeless Programs
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August 1989
Page 21
Homeless Programs
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Page 22
CHAPTER 4
DIRECTIONS FOR THE FUTURE
4.1
FINDINGS
The idea that service providers for the homeless can improve their services to
their clients by developing businesses is not new. Short-term solutions such as shelter
services have long been funded, at least in part, by recovery and recycling businesses
such as the Eugene Mission's newspaper recycling program and thrift stores. Using
agency-run businesses to create long-term solutions to homelessness is the challenge that
many organizations are facing today. Our respondents have shown us that long-range
solutions are possible with a variety of business approaches.
Different business types are suitable for achieving different objectives. Programs
with single, short-term objectives such as generating revenue or placing people in
temporary jobs can develop simple approaches such a single service business or a
recovery and recycling business for revenue, or a single service business or employers'
network for temporary placements. Long-term employment might be considered a single
objective only if placements are in positions for which clients are already qualified.
Long-term employment, in most cases, is a multiple objective. A program
working for long-term solutions becomes much more complex because the factors that
put people at risk or make them homeless require a high level of client support and,
ideally, ongoing case management to prevent recidivism. A program with long-term
goals will need resources to address clients' multiple needs--material, medical, emotional,
and social as well as job skill related. Most programs with long-term placement as a
primary goal expressed a need to expand support services for clients. Transportation to
jobs and child care are two needs that are largely unmet and critical for long-term
solutions.
Creating stability for the client is another interest expressed by many programs
contacted. Becoming accustomed to routine and responsibility can be a major
adaptation for some clients. Programs would like to provide screening and counseling to
help place individuals in programs where they have a good chance to succeed, regardless
of their skill level or basic intelligence. Program managers want to be able to follow-up
on clients after they are placed in jobs to help overcome problems and to gauge the
success of their programs. These needs are often not included in a project plan.
Multiple-objective programs probably require multiple funding sources. We doubt
whether any of the programs that have long-term or multiple objectives could survive
without subsidies in the form of donations from business, grants, or state vocational
rehabilitation contracts. Multiple-objective programs that have developed creative and
mutually beneficial relationships with multiple funding sources include the York County
Shelter Bakery, SRDC's three projects, and ARCH's housing rehabilitation program.
Homeless Programs
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4.2
RECOMMENDATIONS
The key to successful job referral and placement services is outreach to and
cooperation with private business. Programs like Restart and Burnside Community
Council's Job Corps spend as much time making contact with the business community as
they do with clients seeking jobs. A common limiting factor for developing job markets
for clients is the lack of available transportation. Another tool of great value to this type
of endeavor is a direct link with the state employment service. Just One Break is
directly linked with the California State Employment Division through a full-time state
employed staff person and an on-line computer employment listing.
The keys to generating revenue for shelter services with an agency-run business
are finding a stable market and getting the support of local business. Incorporating a job
training objective with revenue generation will greatly limit the revenue raising potential
of the project unless the training program is subsidized, such as a state funded vocational
rehabilitation program.
Recovery and recycling businesses still hold promise for generating revenues.
These businesses rely heavily on the largess of business for their resource base (eg.
SRDC's bank bag recycling business) or on their ability to collect marketable materials
(eg. Eugene Mission, St. Joseph Center Thrift Store). New opportunities for this type of
business will open up as communities are motivated to solve major solid waste problems.
For instance, plastics recycling is a growing business. Market conditions will probably be
unstable until collections systems are established, but recent legislation in Portland and
at the state level have stimulated interest in this growth industry state-wide.
Two programs contacted suggested that another promising business that they
consider developing along these lines is the off-sale clothing business. Dependent on
donations or below wholesale prices from the clothing manufacturing industry, off-sale
retailing would be directed at a more prosperous market than is the traditional thrift
store approach. These businesses offer only low-skilled job opportunities except for
management staff. Retail sales might be cultivated as a marketable job skill for a
limited number of clients.
To incorporate revenue generation and job training, we advise serious market
study. Find a need for a service or a product that can be anticipated to continue and
that employs several levels of job skills. Preferably, get a contract with a private business
or a government agency for the service or product. York County Shelter Bakery has
contracts with an elderly congregate meals program and vocational rehabilitation funds
for training at several skill levels. This arrangement yields net revenues that fund one
sixth of their shelter services budget. Emmaus House gets contracts with construction
companies to build cabinets. The contracts pay for the training program part of the
time, and are expected to support shelter services when the business is well established.
The cost of job training programs can be reduced with cooperative arrangements
with educational organizations. Samaritan House's nurses' aid certification is an example
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of a shelter-run project using this approach. Osage Initiatives has brought two non-profit
educational organizations under its roof to make available basic literacy and job skills
training in the same facility with its small business efforts and a for-profit employment
service.
We found a number of ideas for service businesses that could incorporate several
levels of skill training and the prospect of generating revenue. Services that include
work at varied skill levels and may provide for well-paid jobs for the persistent include
carpentry, landscaping and grounds maintenance, and painting and wallpapering. An
exciting model that addresses one of the important aspects of homelessness that others
are unable to address is ARCH which is training clients for building-trades jobs while
restoring low-income housing. We think this Washington, D.C. project, funded with
major private sector support and Stewart B. McKinney funds, could be a model for cities
nationwide.
Local determination of what kinds of enterprises have the best chance of success
should include inquiries to state employment offices to determine what skills are most
needed at the present time and anticipation of future needs. Unions should also be
contacted to find out where there may be gaps in the labor pool that need to be filled.
For some trades, the unions may limit the kinds of projects allowable for union approved
shops (e.g., Emaus House's wood-shop contracts are limited to certain products).
Where possible, proposed businesses should undergo a thorough market study.
This is an opportunity to get private enterprise to donate their services to your worthy
cause. A market study may confirm your hopes, or lead you to a new, more productive
approach. If a group is operating from a fixed location, an informal survey of neighbors
and neighborhood groups might provide a service idea that would create both a workable
opportunity for clients and good community relations. An important consideration for
any proposal is to include possibilities for work at many skill levels.
Money is both the beginning and end of a successful program. Private enterprise
needs skilled labor, and smart businesses will contribute to the costs of creating and
maintaining it. The same funding sources that support shelter may be able to contribute
more if they see the potential for long-term, positive results. Stewart B. McKinney
funds may be available for creative projects incorporating training and placement (see
Appendix D for examples of funded projects). The important point here is a variety of
sources, and flexibility.
Learning how to represent the benefits of your program to private industry may
be the most important strategy for developing a successful business venture. Program
staff need to familiar with private sector language in order to sell their programs to
private sector benefactors. Benefits to business and economic development, in general,
need to be emphasized. Large donations are often tax deductible. They are also good
public relations opportunities and should be played as such, unless donors prefer not to
do so. A steady supply of either skilled or casual labor can have a stabilizing effect on
the business climate. Rehabilitation of neighborhoods makes good long-term economic
sense, and projects such as ARCH, directed at such rehabilitation, should be readily
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supported by people doing business in the effected area. In particular, businesses that
are bound to fixed locations, such as utilities and locally owned industry, have a stake in
the health of their communities and may be cultivated as a source of support for projects
that improve the appearance and stability of neighborhoods.
Good examples of working programs for long-term solutions to homelessness exist
nationwide. Portland has one of the more recognized job placement programs
nationwide in the Burnside Community Council Job Corps. We now have the
opportunity to develop an exemplary job skills improvement program, or creative
businesses to support shelter. Our study shows that it is not only possible to do both, but
that it would be shortsighted not to.
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BIBLIOGRAPHY
See Bibliography at the end of Appendix A
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APPENDIX A
PORTLAND HOMELESS PROJECT
Homeless Programs
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Page A-1
TECHNICAL MEMORANDUM #1
PORTLAND HOMELESS PROJECT
Submitted to:
State Community Services
By:
Community Planning Workshop
Department of Planning, Public Policy, and Management
University of Oregon
Chris Beanes
Mike Farber
Nancy Kincaid
28 March 1989
I. INTRODUCTION
In the winter of 1988 David Povey, faculty director for Community Planning
Workshop of the University of Oregon (Workshop), and Dave Van Otten of State
Community Services (SCS) began discussions concerning problems of the homeless in
Portland and ways that Workshop might be involved in finding solutions to some subset
of those problems. Those discussions led to other meetings with Lynne St. Jean of
Burnside Community Council (BCC) and Sharon Nielson of Central City Concerns
(CCC), and to a number of ideas about what subset of the problem would make the best
use of Workshop's resources.
In January 1989 the participants in these discussions decided to focus on the
interrelationships among:
1.
The type and location of jobs that BCC was able to find for the homeless,
2.
The types of homeless people most likely to succeed at such jobs,
3.
The current and desired locations for emergency shelters and transitional
housing for the homeless, and
4.
The ability of BCC or any social service agency to track the success of its
programs for the homeless.
The general conclusion of the participants at the January meeting was that it
would be useful to all agencies involved if Workshop could:
1.
Design and develop a database system that would allow BCC to (1) attend
to the needs of its clients more efficiently and to evauate its success in
doing so, and (2) compare the location and type of employment
opportunities it provides with the location and type of people to whom it
provides them.
2.
Conduct such a comparison to determine the areas in Portland that BCC,
CCC, and other agencies should target for emergency shelters and
transitional housing for the homeless.
3.
Comment on the type of for-profit activities that could be developed to
provide employment for the homeless and generate income for the social
services agencies providing services for the homeless.
The details of a work proram for achieving these goals are contained in
Workshop's contract with SCS. That contract also describes the purpose of this technical
memorandum: to summarize issues and imformation related to homelessness in order to
focus the remainder of Workshop's analysis. To that end, in this memorandum we
discuss national problems of homelessness and those of Portland in particular, in light of
a review of current literature and government studies. We include a brief history of both
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national and local homelessness to provide context for our more detailed review of the
characteristics of the homeless. We have attempted to characterize distinct groups of
homeless people and their special needs. Because many individuals have characteristics
of more than one group, we offer the categories chiefly as indicators of the complexity of
the problem and of the different kinds of services that will be required for successful
transition in individual situations into self-managed living situations. Finally, we discuss
interviews with service providers in Portland and their suggestions for further study.
This study is the first phase of a larger study intended to provide planning tools
for service providers for improving the effectiveness of their placement programs.
II.
A NATIONAL OVERVIEW OF THE HOMELESS PROBLEM
A.
A Historical Perspective on Homelessness
Homelessness is not a new condition of life in the United States, but its
manifestations have changed with the times. In the early history of European settlement
of the country everyone was homeless until they created their own settlements. Itinerant
trappers and miners opened the frontier for later settlers who would develop permanent
homesteads. As the extraction of natural resources expanded and industry evolved, the
mobile labor force grew, too.
Millions of wandering laborers in the late 1800s to early 1900s were invaluable to
the expansion of the nation. They cut timber, mined ore, threshed wheatfields, laid
railroad tracks and built towns. Hobos were the frontiersman of the industrial age.
Many of the hobo population didn't fit into the "new" economy of factories and offices.
Hobo culture declined after the 1930s when much of the West was settled and the social
programs of the New Deal offered jobs to this segment of the population.
The New Deal helped to resettle another large group of homeless people. The
1929 stock market crash, the ensuing Depression and and the effects of Dust Bowl
conditions in the Midwest displaced hundreds of thousands of people in the early thirties.
An estimated ten to eighteen million people were unemployed at the height of the
Depression. Population shifted from rural to urban areas and from eastern to western
regions of the country. The possibilty of casual work in port cities and the creation of
federal economic recovery and development programs such as the Civilian Conservation
Corps, Works Progress Administration, and the Bonneville Power Administration created
many temporary jobs in the Northwest in the mid-thirties.
Another economic depression in 1937 was forestalled by the beginning of World
War II and the concomitant shift to wartime production patterns. WWII activities made
Portland one of many busy and prosperous ports around the country. This reinforced the
traditional pattern of itinerant workers, most of them men, establishing temporary
residency near major shipping and railroad centers.
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After the war the U.S. economy boomed. The electrification projects started
under the New Deal made economic diversity possible anywhere in the country. Federal
loan programs made home ownership possible for a growing sector of working people,
particularly veterans. Development of the federal highway system accelerated in the
1950s and shifted transportation priorities from the railroads to the automobile. The
suburbs became the U.S. model for housing. Homelessness did not go away during this
time, but economic prosperity in general and reduced pressure on urban space because
of the development of the suburbs made the problem less acute and less visible.
Low occupancy of urban housing and lack of interest in downtown areas resulting
from the suburbanization of America allowed the traditional homeless population the
space they needed to provide for themselves in those prosperous years. Flophouses,
single room occupancy hotels, hash houses, and the other support systems that made life
tolerable for the disaffiliated survived until gentrification and urban revival efforts
escalated downtown real estate values. The old hotels came down or were upgraded for
a more profitable clientele while the vacant lots and sheltered alleys were built on and
secured for new uses. During the 1950s and 1960s an aggressive program for building
low-income housing was subsidized with Housing and Urban Development funds.
Owners' contract responsibility to keep those units available as low-income rentals only
lasts twenty years. As many as 900,000 units of subsidized housing may be converted to
other uses as those contracts lapse. Another 100,000 may be lost to abandonment,
foreclosure, arson for profit, and condominium conversion (Common Cause, 1987).
While low-income housing stocks decline and costs rise, working wages have
declined. The economy has shifted away from a primarily industrial base in which a
largely unionized laborer force earned decent wages. The growing service based
economy offers lower wages and fewer benefits to unskilled and semi-skilled workers. In
addition, the minimum wage has declined in real value progressively for a decade. It has
remained at $3.35 since 1981. Five million U.S. workers are paid minimum wage or less
(Consumer Reports, 1987).
Subsidies for low-income housing were reduced 60% by the Reagan
administration (Common Cause, 1987). The number of new low income households
recieving fiscal assistance has gone down from 217,000 in 1981 to 83,217 in 1986. The
median percentage of income that households must spend for housing (rent and heat)
grew from 35% in 1974 to 46% in 1983 (Consumer Reports, 1987). These economic
conditions have added new faces to the homeless population. Paraphrasing from Peter
Marin (Utne Reader, 1988), added to those who have traditionally struggled to live
outside the social order is a new group struggling to regain their place within it.
The Reagan administration also changed eligibility criteria for entitlement
programs such as Disability and Aid to Families with Dependent Children. This has
made more people vulnerable to homelessness, particularly single parent families and the
disabled.
Usually economic factors have combined with personal problems to put people on
the streets. High divorce rates have increased the number of single-parent families,
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usually headed by women. Runaway and throwaway children and adolescents are
another product of dysfunctional families. The growing number of elderly citizens whose
fixed incomes do not keep them abreast of inflation are vulnerable to homelessnes, too.
One well-intentioned social policy has created a large part of the growth in
potentially permanently displaced persons. Deinstitutionalization of the mentally ill was
a policy shift that started in the 1950s in response to the horrible living conditions in
mental institutions. The intention was to transfer mentally-ill patients from hospitals to
residential settings. In 1955 mental hospitals cared for 559,000 patients; in 1980 the
number had fallen to 130,000 patients. The case maintenance and group-home system
which was supposed to care for those released from institutional care and integrate them
into the community was never adequately implemented.
B.
Characteristics and Needs of Today's Homeless
The homeless are not easily categorized: they are of different ages, ethnicity,
family circumstances, and health. The characteristics of the homeless population differ
dramatically from one community to another. Every city has homeless adults, but the
demographics are not uniform throughout the nation.
The range of estimates of the number of homeless people is wide. At the low end
is the U.S. Department of Housing and Urban Development (1984) estimate of 200,000
to 300,000. At the high end are advocates' estimates of more than 2 million (Hombs and
Snyder, 1982). Whatever the absolute numbers, the number of homeless people has
grown appreciably in recent years. Surveys conducted by the U.S. Conference of Mayors
in 25 representative cities in each of the past 2 years identified no city in which the
numbers were falling; most cities reported annual increases of 15 to 50 percent (U.S.
Conference of Mayors, 1987).
The traditional single adult transient population still comprises the largest group
among the homeless population. They are more likely to be men (56 percent of the
total population) than women (25 percent of total population). The remainding 19
percent of the population are adolescents or families with children (Committee on
Health Care for Homeless People, 1988). The average age is between 34 and 37. 55
percent are high school graduates. Up to 45 percent suffer from alcohol abuse and 23
percent suffer from drug abuse (Breakey, 1987).
Most recent studies have found that approximately 25-40 percent of homeless men
suffer from serious alcohol problems, compared to the national average of 11-15 percent
for men and 2-4 percent for women (Mulkern and Spence, 1984; Stark, 1987; Schutt and
Garrett, in press). Homeless people with alcohol problems are more often physically
disabled than homeless people without such problems. As a consequence they are more
likely to require health care services. A primary need identified for this segment of the
homeless population is detoxification centers, within the shelter if possible.
Convalescence programs and entry into specialized alcohol-free living environments are
also needed to help ease the recovering alcholic into the greater society.
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Significant numbers of the homeless have been identified as mentally ill; numbers
range from 25 to 40 percent of the adult transient population (Bacharach, 1984). Chronic
conditions of the mentally-ill fall into these categories: long duration, frequent
recurrence over time, and slowly progressing impairment (Bacharach, 1984). Homeless
mentally ill people use hospitals as places to stop and get out of the cold, to rest, get a
place to sleep. It is the hospitals that provide comprehensive services in a safer
environment. Among the most vulnerable group in the mentally ill population are older
people manifesting a high incidence of psychiatric disability. Shelters need to provide
medical, psychiatric and social services and a less threatening atmosphere. Among the
support services identified, we have found eight critical needs of the mentally ill
population: Shelters, residential alternatives, financial support, psychiatric supports,
rehabilitaion, case management, contact services and governmental, legal and societal
supports.
Up to 70 percent of homeless youth come from abusive homes, with no family to
return to (June Bucy, 1987). Every study observed indicated that homeless youth were
most often first removed from their families by authorities who deemed the family
abusive or neglectful. The youths then were placed in a variety of placements and
eventually ejected, emancipated, or simply lost in records. Most homeless youth are
excluded from school due to frequent moves or the lack of a permanent address. The
needs of this population are primarily stability and permanence. Shelters generally do
not accept older children, particularly boys. Adult shelters for either men or women are
often not allowed to assist minors. They also need educational programs. Most
homeless youth have not completed grade school.
Our research indicates that up to 50 percent of the homeless population are
veterans of war, the majority being from the Vietnmam War (Goodwin, 1986). Many of
the Vietnam veterans suffer from Post Traumatic Stress Disorder (PTSD). Some of the
symptoms of PTSD are depression, sense of isolation, rage, and alienation. PTSD is
considered a personality disorder and in most cases does not create eligibility for
disability payments (pers. com. Lynn St. Jean, March 24, 1989). Many veterans require
psychological help and support from peers in group settings.
The fastest increase in the homeless population has been families. Families now
comprise 28 percent of all recorded homeless persons in the U.S. ( Committee on Govt.
Operations, 1986). Some characteristics that homeless families share:
1. They are likely to be headed by women with 2-3 children.
2. The mothers are in their late 20s.
3. They receive AFDC.
4. They are isolated socially, with few, if any social supports.
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5. They are multi-problem families (eg. chronic economic, educational, vocational,
social problems, fragmented support networks and have difficulty accessing the
traditional service delivery system).
A scarcity of low-income housing is a primary cause of homelessness for families.
A pressing need for families is the provision of shelter spaces for the entire family,
instead of the usual method of separating the family into separate spaces. Another more
permanent need is the restocking of low-income housing. In addition, they need
assistance getting permanent work to end the cycle of poverty and homelessness.
In one study, the elderly made up less than 10 percent of the homeless population
(Roth, 1985). Three hypotheses for the low percentage of elderly people in the homeless
emerge:
1. In turning 65 many elderly receive various benefits (Social Secuity, Medicare and
Senior Citizen housing).
2. Homeless people do not survive to old age, the realities of existence for the
homeless are debilitating.
3. Homeless elderly are reluctant to use shelter facilities, due to the high dangers
involved and the vulnerability of the elderly.
A pressing need for elderly homeless people is shelter where they feel safe.
III.
HOMELESSNESS IN PORTLAND
A.
Introduction
Portland, Oregon's experiences with the problems of homelessness parallels those
of the nation as a whole: economic cycles since the late 1800s, federal policies, and
changes in social structure had similar impacts. However, a combination of Portland's
historic role as a center for the homeless and more recent local effects have led to a
substantial increase in the number of homeless people currently within the city.
This section outlines the history of homelessness in Portland and summarizes the
findings of recent studies and counts done of the Portland homeless population. The
impact of the loss of SRO housing and City of Portland policies relating to the homeless
since 1972 will also be reviewed.
B.
Historical Perspectives
Portland is the traditional center for the homeless in the Pacific Northwest. As a
major center of the industries such as agriculture, logging and shipping, Portland
attracted large numbers of transient workers in the late-1800s. The local Skid Row, at
its peak covering 150 city blocks, grew out of the area surrounding the waterfront. It
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primarily consisted of hard-working, skilled and semi-skilled, transient men. At the turn
of the century, Portland had the largest homeless population per capita in the nation
(The Portland Model, 1988: 9).
The rapid growth of Portland from 1900 - 1913 as a hub of commerce and tourism
created a demand for hotels and boarding houses. Expansion of the city and population
outward to the suburbs left the downtown short-term housing facilities as the nucleus of
Portland's skid row. Blake (1987:5) cites two other contributing factors to the growth of
the homeless population in Portland:
1. Portland became a transportation axis once the transcontinental railroad was
established attracting more workers to the region;
2. Numerous labor offices made Portland the contract-labor center for the
Northwest. Transient men were placed in temporary jobs as loggers,
agricultural workers, and stevedores on the docks (Blake, 1987: 5).
Like most cities during the Depression Years of the 1930s, Portland's homeless
population grew as migrants arrived in search of work. These new homeless were no
longer the skilled transient workers; unskilled young men, women, children and families
swelled the homeless population. The average age of the skid row resident dropped
from 50+ years to 32 years. (Blake, 1987: 3)
From the end of the Depression to the late 1970s, Portland's skid row declined in
geographic size by almost 90%. The population decreased by approximately 70%.
During the decades after World War II, skid row was again populated primarily by older,
single, white males living in Single Room Occupancy (SRO) housing (Blake, 1986: 6).
Portland became a center of community activism in the early to mid-1970s. Skid
row was targeted by organizing efforts that slowed the demolition of low-cost housing.
Burnside Projects, Inc., Burnside Community Council, and the Burnside Consortium
(later, Central City Concern) emerged, operating shelters, clean-up services,
detoxification programs, and SRO hotels. These groups, in combination with a variety of
church-based organizations, have provided the primary resources for the homeless in the
1980s.
The early 1980s saw a large increase in the number of homeless people and rapid
influx of women, children and families into the ranks of the homeless. There are many
reasons for this sudden growth:
1. Recession of the early-1980s. The national economic recession was particularly
severe for Oregon. High inflation rates slashed demand for lumber causing
thousands of workers to be laid off and hundreds of businesses to collapse.
Much of the unemployment occurred in the smaller cities of the state so
workers and their families migrated to Portland in the hopes of finding
employment. These hopes often went unfulfilled and the unemployment rate
in Portland climbed.
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2. Transformation of the Economy, Two major processes have been at work.
First, the timber and agriculture industries, among the largest employers in
the state, automated their operations. For example, in 1988 Oregon's sawmills
and plywood factories produced record amounts of lumber, but with half the
manpower required in 1979. While economists call this an increase in
efficiency and productivity, it put thousands of people out of work. Second,
like the national economy, Oregon's economy is shifting to service-based
industry with far lower wages than were available in the heavy industrial
sector. The typical wages of under $5 per hour have left many families part of
the "working poor" who are employed but are still homeless or "at-risk" of
homelessness.
3. Impact of National Policies: Portland's lower-income people have had to
withstand the same federal policies as the rest of the nation: Reagan
Administration cutbacks in the Community Development Block Grants to
cities, HUD, welfare, and support for low to moderate-income housing
construction programs; a decline in the real value of minimum wage; and
fiscal and deregulatory policy that caused real increases in housing prices.
4. Development/Revitalization of Portland's Downtown. Between 1950 and the
mid-1970s, revitalization of the area just north of Downtown (the Burnside
neighborhood) took the form of demolition of old hotels and houses. In the
1980s, the area is gentrifying as affluent people and businesses recognize the
value and attractiveness of the historic area. Mayor Bud Clark has slated the
area for increased economic development and private investment as the only
logical direction for the downtown business district to spread. (Zusman, 1988:
2) Large projects such as the U.S. Bank tower have displaced housing and
some of the older SRO hotels have been converted to offices or semi-luxury
hotel space. The new development has led to increased land values and
increased property taxes forcing owners of low-cost housing to raise rental
prices or convert to higher return non-residential uses. The expanded contact
between classes of people in Burnside is causing escalated conflict
C.
Characteristics of Portland's Homeless Population
Estimates of the total number of homeless people and the disaggregation of
specific populations from this total vary widely depending on who is counting. Each
study we reviewed uses its own definition of who is considered homeless. Most studies
also suffer from methodological inexactness, perhaps biased sometimes by a particular
agency's interests. For example, on the national level HUD estimates there are only
200,000 - 300,000 homeless people. Well-known advocates and organizations have
estimated the population as high as 2 - 4 million. (Hombs and Snyder, 1982)
The situation in Portland is no different. Several studies have been conducted
over the past few years in an attempt to quantify the scope of the homeless problem.
The results are wide-ranging. Table 1 shows various estimates of the total number of
homeless in the Portland area.
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TABLE 1
TOTAL HOMELESS POPULATION IN THE PORTLAND AREA
Oregon Community Action Program (1988): (Ritzdorf and Sharpe: 185)
Tot. Homeless Population (Portland)
5,620
Single men
54%
Two-Parent families
25%
Women and children
21%
Robert Wood Johnson Health Care for the Homeless (1984): (Ritzdorf and Sharpe: 185)
Tot. Pop. (Portland)
4,500
Tot. Pop. throughout the year
8 - 10,000
Chronic/Traditional Homeless
2 - 3,000
Deinstitutionalized
750 - 1,000
New Poor(data unavail.)
NA
Street Youth
300 - 600
Battered Women
100
Gerald Blake (1987):
Total Population (Oregon)
10,000
Total Population (Portland)
6,000
Males
85%
Females
15%
Single (never married, divorced, widowed)
81%
Bureau of Planning (1986): (The Planning Group, 1986)
Total Population (Portland)
2 - 6,500
Singles
2 - 3,000
Families
2 3,000
Youth
300 - 500
Oregon Shelter Network (1989): (The Oregonian, March 20, 1989, B4)
Total Population (Oregon)
27,000
Total Pop. (Portland Metro Area)
14,000
Metropolitan Community Action Agency (1988)
Total Population (Portland)
11,201
Single men
26%
Single women
10%
Couples without children
4%
Families
52%
Youth
5%
Elderly
2%
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Estimates of the total population of homeless people for the state of Oregon
range from 10,000 to 27,000. Estimates of the of the total population of homeless in
Portland range from 2,000 to 14,000. There are wide-ranging estimates for the various
sub-grouping of the homeless population. The estimates of the The percentage of males
versus the percentage of females and children within the Portland homeless population
are among the widest-ranging estimates. Estimates vary from a population composed of
85% males to a population composed of 62% women and families.
Part of these differences may result from real differences in homelessness at the
times the studies were conducted, but more of the difference is probably the result of
measurement error. Documentation from the studies was unavailable to us; we relied
primarily on secondary sources and summaries of the actual studies. Without conducting
a new census of the homeless or a more thorough examination of these past studies, the
exact number of homeless is uncertain. However, a number of local authorities believe
Metropolitan Community Action's Draft Plan (1989) provides the most accurate
estimates of the homeless population and its subgroups. These authorities include the
City of Portland, Bureau of Planning (Oregonian, March 20), and Richard Myer and
Lynne St. Jean of the Burnside Community Council (Personal phone conversations, May
14).
D.
The Supply of Housing for Very Low Income People
There are essentially three types of housing available to the very low-income
people of Portland: (1) emergency shelters, (2) transistional housing, including SRO
hotels and boarding houses, and (3) permanent, low-income housing.
Emergency Shelters
Portland's experience and policies concerning emergency shelters is enigmatic; at
the same time Portland is viewed nationwide as having a model system of shelters both
in terms of quality and quantity, there is a strong desire on the part of city officials to
completely do away with these shelters (Personal conversation with BCC and CCC staff,
March 1989).
Public and church-run shelters in Portland combine to provide approximately
1,000 places for people to stay during the winter months as part of the Winter
Emergency Shelter Network (Oregonian, March 20, 1989: B1; and Blake, 1987: 22).
Many of these shelter spaces close seasonally after the winter. The Metropolitan
Community Action Draft Plan of January 1989 has identified a total of 495 shelter beds
in emergency shelters (see Table 2 below) (MCA Draft Plan, 1989).
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TABLE 2
PORTLAND AREA EMERGENCY SHELTERS
Permanent Shelter Beds - North of Burnside
(year round shelter beds)
Burnside Projects
Emergency Night Shelter
140 men/women
Portland Rescue Mission
50 men
Temporary Shelters - North of Burnside
(Temporary shelter spaces - winter shelter networks)
Burnside Projects
Overflow Shelter
40 men
Union Gospel Mission
50 men
Shelters South of Burnside
Burnside Projects
Youth Shelter
30 youth
Salvation Army - Harbor Light
55 men
YWCA - Women's Resource Center
10 women
Shelters East of Burnside
Burnside Community Council
Baloney Joe's
120 men
TOTAL SHELTER BEDS
495 people
Source: Metropolitan Community Action Draft Plan, 1989: 25
NOTE: This list does not include emergency shelter beds in domestic violence or church
shelters which primarily serve families with children.
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CP Workshop
March 1989
Page 11
The Housing Authority of Portland set a goal last year of replacing all the
emergency shelters with transitional and permanent housing (Oregonian, March 20, 1989:
B1). Among the reasons given for that goal are: (1) shelters help to continue the cycle
of homelessness rather than break it; (2) repeated and prolonged use by the homeless
leads to expensive duplication of services; (3) use of drugs and alcohol is fostered by
shelters; (4) crime, violence, and litter are attracted to shelters; and (5) services could be
better coordinated with specialized transitional housing.
Another major factor encouraging the shift from shelters to transitional housing
is the extreme difficulty of siting a shelter. The local businesses and neighborhood
groups will almost certainly attempt to block the development of shelters within their
districts. The current controversy surrounding the relocation of Burnside Community
Council's Baloney Joe's Shelter is a case in point. In July 1987 BCC purchased a
building in the Old Town section of downtown Portland. Mayor Clark and the city
council announced their opposition to this location. After more than a year of
negotiations, Clark announced in March 1989 that Baloney Joe's must relocate to one of
three sites within the city's Eastside. Officials expect an 18-month delay until Baloney
Joe's will be able to occupy any of the sites, in part because of neighborhood opposition
and certain court suits (Oregonian, March 8).
Transitional Housing
Unquestionably, Portland's policies and funding have focused on the
rehabilitation and development of SRO housing and similar transitional housing units as
the primary means of curtailing homelessness. A Single Room Occupancy unit is defined
as:
"a one-room dwelling unit without either a kitchen or bathroom or both.
It is common for SRO structures to have communal lavatories as well as
community kitchens. The rooming unit is usually contained in what is
termed a residential hotel. An SRO is generally intended for one-person
occupancy and intended for permanent (at least month-to-month)
residency" (Status Report, Sept. 1987: 4).
Typically, an SRO unit is 100 to 180 square feet with rental prices ranging from
$65 per month to $225 per month.
Within Downtown Portland, in 1970 the SRO inventory was 4,128 rooms. By
1978, the supply decreased by 1,345 rooms. From 1978 - 1983, another 642 rooms were
lost. Since 1978, supply has decreased by about 125 units per year. In 1986, the SRO
inventory was 1,702 units, a cumulative loss of 59% from 1972. (Final Report, Sept.
1986).
Loss of SRO housing is blamed on several factors, primarily related to the low
profitability of SROs compared to other uses that could be developed at the same site:
the costs of SROs increases (especially upkeep and management), the revenues do not
Technical Memorandum #1
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Page 12
increase commensuratly, and other uses will yield a greater return. Business and
neighborhood attitudes about the location of SROs have also contibuted to the decline in
SRO housing.
SRO housing is believed to have a large significance for the homeless in
Portland. Its low-cost accommodations near medical, employment, and social services
can provide a first step towards independence for the various categories of homeless
people and of utmost importance. It can mean an end to life on the streets or in shelters.
Portland has achieved a large measure of success with the rehabilitation of SRO
housing over the last few years. With the help of Oregon's Congressional delegation,
Portland was able to apply formerly restricted HUD Section-8 funds to the rehabilitation
of SROs. 247 SRO units were renovated under this program. Another 620 units were
rehabilitated by the Portland Development Commission using funds from Historic
Preservation, the Federal Emergency Management Agency, and local tax increment.
These aggressive attempts have limited the recent loss of SRO housing. (Blake, 1987: 20)
The question of siting of SROs has caused considerable debate. Most SROs are
located within a few blocks north or south of West Burnside Avenue. The debate has
centered on whether the city should encourage or require the decentralization of
residential hotels to neighborhoods throughout the city. A consultant for the Bureau of
Planning Study in 1986, advised that "relocation of SRO housing would cause extreme
political controversy." Furthermore, because of the lack of existing and available
buildings outside of the Burnside area, financial feasibility of SROs would be unlikely
because large-scale new construction or major physical rehabilitation would be required
(Bur. of Planning, Final Report, 1986: V-3).
Permanent Housing
Direct discussion of permanent, low-income housing as a solution to
homelessness is surprisingly absent from City of Portland and Multnomah County
planning literature. The focus, as mentioned, has generally been on Single Room
Occupancy housing. The high cost of rehabilitating permanent housing has been cited as
one reason for this focus on SROs. The Bureau of Planning estimated it was three times
more expensive to rehabilitate permanent housing than SROs when the city undertook
the use of the HUD Section-8 funds.
However, there are several programs to help finance the cost of permanent
housing. The Portland Development Commission recently authorized $8 million to
preserve and increase the city's housing stock of low-income downtown rental housing.
Two- thirds of these funds "have been set aside for projects for very low-income and
homeless people." (The Portland Model, 1988: 12)
The city has achieved a certain amount of success in providing for permanent
housing. It succeeded in capturing federal funds in the late 1970s for new and
rehabilitated Section 8 housing for the elderly. Almost 1,000 units of permanent housing
were constructed in 11 different projects.
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March 1989
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In July of 1988, the Rose Apartments were opened and will be managed by a
coalition of seven agencies. Fifty-seven units of permanent housing for single, homeless
women have been combined with a variety of on-site case management and support
services.
Over the last several years, the Bureau of Planning has begun examining new
techniques to finance housing (Implementation Strategies, Final Report: 1986). These
strategies include requiring commercial and housing developer contributions to a housing
trust fund, enactment of "linkage" programs (which are exactions from commercial office
building developers in the form of monetary contributions to housing programs or direct
construction of low and moderate-income housing), and housing preservation (anti-
demolition) ordinances. A real estate transfer fee plan, projected to raise $2.5 million
for transitional and permanent housing development, is being put to voters of the city at
the end of March 1989.
E.
City Policies Affecting Location of Shelters and SROs
The long-standing city policy of consolidating emergency shelters and Single
Room Occupancy hotels to areas where low-income people are concentrated continues
to be central to the debate about the future of homelessness in Portland. Operators of
SROs, low-income advocates and city officials are divided as to whether the
diversification of low-income housing to neighborhoods throughout the city is a sound
and feasible policy (Bur. of Planning, Final Report, 1988: Chapt. 2). Some providers and
advocates believe that SRO housing needs access to social services and that the
population is easier to "monitor and control" if it is centralized. Others expressed
concern about the social responsibility of all of the neighborhoods to take their "fair
share" of housing. There is also concern that concentration policies do not effectively
account for variations in the needs of specific sectors of the homeless population.
Women and children are the group most often identified as best served outside of the
downtown core. A summary of the city policies affecting the homeless follows.
1972 Downtown Plan: In the 1950s and 60s, city development in downtown relied
on demolition of older buildings and resulted in substantial housing loss. In 1972,
Portland's first plan for downtown called for rehabilitation of existing buildings and
recognized the importance of the city's low-income housing.
1979 Downtown Housing Policy and Program: Adopted by the City Council, this
plan emphasized the city's commitment to low-income housing. SROs were generally
considered as part of the low-income housing inventory. Policy #1 stated:
"The city recognizes the importance of Downtown as a low-income housing
resource, appealing to a variety of needs and lifestyles and supported by existing
services. It also recognizes that this housing and these services cannot be
effectively and economically replaced elsewhere in the City." (Status Report,
1986: 7 quoting from the Downtown Housing Policy and Program, pg. 6)
Technical Memorandum #1
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March 1989
Page 14
In a report to the City Council by the Downtown Housing Advisory Committee, one of
the conclusions was:
" ...low-income units for both transient and permanent residents should be
stabilized at their current number with no new low-income housing redeveloped
or built except to replace lost units." (Status Report: 6)
1981 North of Burnside Land Use Policy: This policy advocated a multi-use
approach for the area combining housing, medium density commercial space, and
increased transportation services. The policy for housing would be to:
" ..concentrate and consolidate long-term low-income housing and
supportive services where largest concentrations are currently
located continue to support housing rehabilitation. but select buildings
for public assistance based on the number of housing units within each
building and the location of the building within existing concentrations."
(North of Burnside, 1981:15)
The North of Burnside Policy also called for:
"location of temporary housings (shelters), drop-in centers and social
services for use by non-resident transients to be in the north part of the
study area along N.W. Glisan and Flanders."
1987 Clark-Shields Agreement: Provisions of this agreement were adopted as
part of the 1987 Central City Plan. The agreement allowed for development of SRO
housing up to 1978 levels, but set a zero growth cap on the number of shelter beds
within Old Town. (Zusman, 1988: 2)
1985 - 1988 Housing Assistance Plan: This plan recognized the desirability of
reducing concentration of low-income housing and seems to oppose directing all SRO
resources into the West Burnside area. However, this policy is superceded by the
Downtown Policy and Program which commits the city to locate housing adjacent to low-
income services and where structures can be purchased and rehabilitated at the least
cost. (Status Report; 8)
1988: The 12 Point Plan for the Homeless: Mayor Bud Clark issued his plan for
the homeless in 1985 and updated it in 1988. The plan recognizes housing as a basic
human need. It calls for reclamation of the 2,500 vacant houses in Portland, an $8
million Low-Income Downtown Housing Preservation Program, an expanded voucher
system, retention of low-income housing, central record keeping, and exploration of
varied innovative programs including designated campsites for the homeless. (The
Portland Model: 27)
Technical Memorandum #1
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March 1989
Page 15
F.
Observations by Shelter Providers on the Current Problems of
Homelessness in Portland
In meetings on 24 March 1989 with Lynne St. Jean of BCC and Sharon Nielson
of CCC some of the problems of transitioning people from shelters and the streets into
stable housing situations were discussed. Among the issues discussed were the apparent
changes in the demographics of the homeless, the importance of early intervention for
the newly homeless, problems of coordinating services between agencies with differing
philosophies, and the question of whether society could "solve" homelessness even if
unlimited funds and commitment were available.
The changes in the make-up of the homeless population have been discussed at
length above. What this means to service providers is that they are now dealing with
more people who do not have experience with the exigencies of survival on the street.
Children and young families are not served well by the same services that work for the
traditional homeless population. The disabled and elderly are vulnerable to abuse by the
able-bodied in situations where no one has much to lose. Single-Room-Occupancy
(SRO) housing will not answer the permanent housing needs of these groups even if it
can be made more available.
It is the observation of BCC that smooth transition to stable living situations is
most likely if action is taken in the first six months that a person is homeless.
Approximately 67% of BCC's Job Corp clients last year were "newly homeless" and they
were more easily placed in jobs than their counterparts who had been on the streets
longer. The newly homeless need immediate social support, including job-skill help,
employment placement, peer support and little things like good clothes for job
interviews, alarm clocks, appointment books, hair cuts, and so on.
Coordinating services between agencies has long been a problem in Portland due
largely to care philosophies that range from religious groups offering shelter requiring
participation in religious services and adherence to strict rules of conduct to Baloney
Joe's that will shelter anyone who wanders in. Another point of departure is that each
helping group has a seperate agenda and consequently different priorities for the use of
their funds. A spirit of cooperation and a sense that all the groups have the same
ultimate goals would be very helpful for creating long term solutions to Portland's
problems.
A policy shift about homelessness has emerged at the city level in Portland. The
cap on the number of shelter and SRO beds in Northwest Portland will eventually create
a permanent physical limit on the availability of services in that area, and force planning
for dispersal of facilities to other neighborhoods in the future. Accompanying that policy
is, apparently, a notion that homelessness may be solvable and that shelters may
eventually become obsolete. A big question for service providers is whether this is a
realistic view. BCC and CCC suggest that some percentage of the homeless will always
remain so. They suggest that many of their clients will not adjust successfully to
Technical Memorandum #1
CP Workshop
March 1989
Page 16
independent living. They would like to see serious study on the question of how to
provide privacy and dignity to those who definitely require case management on a
permanent basis. Current landlord-tenant laws limit the supervision of renters even
when it is needed. A model is needed for a living situation that protects both the
problematic client and the service provider.
IV.
CONCLUSIONS
Our analysis in this memorandum leads us to several conclusions that have
implications for the next phase of work that Workshop will conduct:
1.
Accurate information about the number and characteristics of the
homeless in Portland is usually either unavailable or unreliable.
2.
Among the most important factors leading to homelessness is lack of
income, which in turn is highly correlated to a lack of employment and
employability.
3.
The homeless are not homogenous: they have different characteristics and
different problems that require different solutions for providing housing
and other social services.
4.
Most of the obstacles to developing new housing for the homeless are
economic and political: technical criteria (like availability of public
services) are relatively less important.
These conclusions lead us to suggest that Workshop focus its efforts during the
next two months on two tasks, one that we foresaw and one that we did not.
Furthermore, they led us to eliminate a potential task that we discussed in the early
stages of this project: developing locational criteria to guide the decentralization of
shelter and transitional housing. As point "4" states, we do not believe any listing of
technical criteria would have much impact on siting. Moreover, Workshop would be at a
disadvantage if the focus of the study shifted to political and policy issues that are
already being debated by decision makers and interest groups in Portland.
The two tasks we propose are:
1.
Design and implement a computerized system for keeping records on Job
Corps employees and employers. This task has been part of our work
program since the beginning; our research reconfirms its desirability. First,
the task directly addresses a pervasive problem for those trying to design
programs to deliver services to the homeless: lack of data about who the
homeless are and what characteristics they have. Our task admittedly
addresses only a subset of the problem, but it is a start. Second, a lack of
income in the short run and long-run employment skills are major causes
Technical Memorandum #1
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March 1989
Page 17
of homelessness. This task will result in data that will immediately assist
BCC in linking the homeless with jobs, and eventually will allow a rigorous
evaluation of how those linkages can be made with even greater success.
We already have designed conceptually a system that we think meets the
reporting needs of BCC; we have had several discussions with BCC about
the design. In the next two months we will complete and deliver a fully
operational system for entering, editing, retrieving, and summarizing
information about Job Corps clients and employers. The system will use
dBase III+ software on IBM compatible microcomputers that BCC will
acquire.
2.
Describe economic activities that could occur at emergency shelters that
would both (1) provide employment for the homeless, and (2) generate
revenue for the shelters. In a society that is decreasingly disposed to fund
social services, central-city emergency shelters are particularly hard hit.
Not only can their clients not pay user fees, but the costs of holding and
acquiring central-city property are increasing. One solution is to reduce
those costs by decentralizing to lower-cost property. Another solution, the
one that we will investigate in this task, is to see if the shelter could
provide services that have a market value. If it could, and could do so with
a labor pool like the one the Job Corps now uses, there are several
potential advantages:
a.
Revenues in excess of costs to help defray the costs of providing free
shelter
b.
Increased jobs, with wages, for the homeless
c.
Job training, for long-term employment
d.
Potential for economies and increased effectiveness of case
management
In this task we will investigate these issues. We will begin by making calls
to determine whether similar programs exist elsewhere in the country and,
if so, how and how well they work. During April and May we will:
1.
Develop criteria for evaluating the efficiency and fairness of the
programs we discover. Examples of such criteria are net revenues,
number of homeless employed, type of work and job training,
acceptance by the neighborhood.
2.
Design an interview instrument for telephone interviews.
3.
Conduct the interviews. We already have several leads for people
to talk with--those conversations will lead to others.
Technical Memorandum #1
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4.
Summarize the results. We will summarize the results of each
interview in 1-3 pages, which will include our evaluation of the
program viz a viz our criteria. We will summarize all evaluations in
a single table with accompanying text.
5.
Evaluate information we assemble in the database we are
developing on Job Corps employees and employment opportunities
to determine what kind of skills might be available in the homeless
labor pool.
6.
Combine the results of "4" and "5" to describe the enterprises most
likely to be successful in Portland. Our evaluation will look
generally at programs likely to generate net revenues, but will not
provide a pro forma financial analysis. We will discuss the types of
locations most amenable to these types of enterprises, but will not
identify specific areas or parcels.
Terry Moore discussed these tasks with Dan Van Otten on 24 March 1989: Van
Otten said he liked the proposed revisions to the work program. Unless we hear from
SCS or BCC asking us to amend these tasks, we will proceed under the assumption that
they are approved and that the description of the tasks in this memorandum constitutes
the Work Program refer to in our contract.
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Page 19
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