Committee Report CR-5
The Human Services and Veterans Committee conducted a public hearing on January 14, 2015 beginning at 4:04 p.m. in the Sullivan Chamber.
Present at the meeting were Councillor Marc C. McGovern, Chair of the Committee, Vice Mayor Dennis A. Benzan, Councillor Nadeem A. Mazen, Councillor Dennis Carlone, Lisa Peterson, Deputy City Manager, Ellen Semonoff, Assistant City Manager for Human Services, Shelly Chevalier, Planning & Development Manager, Janice Alger, Assistant Director for Administration, Mike Payack, Grants Associate, Liz Mengers, Homeless Services Planner, Maryann Colangelo, HMIS Project Manager, Michelle McCarthy, Grants Manager, Josh Levin, Project Manager, Coordinated Access, Human Services Department, Stephanie Ackert, Multi Service Center Director, Brian Murphy, Assistant City Manager for Community Development, Chris Cotter, Housing Director, Cassie Arnaud, Housing Project Planner, Community Development Department, Steve Williams, Superintendent of Police, Officer Eric Helberger, Officer Matt Price, Matt Nelson, Community and Strategic Partnerships Coordinator, Cambridge Police Department (CPD), Annie Nagle, Aide to Councillor McGovern, Mike Connolly, Aide to Councillor Carlone, and Paula M. Crane, Deputy City Clerk.
Also present were Bill Mergandahl, Chief Executive Officer, Pro EMS, Elaine DeRosa, Executive Director, Tina Alu, Cambridge Economic Opportunity Committee, Bob Woodbury, HEP/Spare Change, Hasson Rashid, Robert Neer, Cambridge Club, Ronit Barkai, Director of Support Services and Community Partnerships, Transition House, Cathy Pemberton, LICSW, Diane Hopson, Sam Greenberg, and Sarah Rosenkrantz.
Councillor McGovern opened the hearing and stated that this is the fourth meeting that this committee had held on the topic of homelessness. He stated that he has much experience dealing with poverty and homelessness. He stated that when thinking about the City of Cambridge, what often comes to mind is Harvard, MIT, and Kendall Square and the innovation that takes place within the city. He stated that these things are used to promote the vision of the city. He stated that over the last ten years the poverty rate has increased and that there are a number of people struggling with hunger, income security and homelessness. He stated that as Chair of the Human Services & Veterans Committee he is trying to bring more light to the issue of homelessness. He stated that it is important to look at what the city is currently doing as well as things that it could be doing to address the needs of the homeless. He noted that the Ten Year Plan to End Homeless in Cambridge is in its tenth year. He asserted that some things have been done well and other areas need improvement. He stated that the values and priorities on the federal level may not be the same as the city's and until priorities change, we may continue to fight an uphill battle.
Councillor McGovern asked Ellen Semonoff to give an overview of the Ten-Year Plan to End Homelessness in Cambridge as well as the review of the Ten-Year Plan to End Homeless (Attachments A and B).
Ellen Semonoff stated that ten years ago HUD required all communities throughout the country who receive HUD funding were required to put in place a ten-year plan to end homelessness. She stated that the 10-year plan included the shifting that HUD was making at the time going from support services to the broader array of shelter and services in the direction of permanent housing. She stated that the timing of HUD's demand was in the vein of HUD moving in the direction that housing was the answer to homelessness. She stated that the Mayor appointed a committee whose members included the Mayor and the City Manager to conduct this effort.
Ms. Semonoff stated that there has been a significant increase in the number of formerly homeless residents now in permanent supported housing. She stated that there has been a continued federal/state government policy shift towards supporting housing rather than shelter. She noted that the Cambridge Police Department has developed a Homeless Outreach Unit with expertise in working with homeless individuals and the broader community. She noted that the Cambridge Continuum of Care planning process which engages homeless service providers has improved data collection and coordination of services. She noted that there has been a significant expansion of affordable housing in Cambridge including some units for formerly homeless individuals. Ms. Semonoff noted that there is significant collaboration between the Cambridge Police Department, Pro Ambulance, Cambridge Health Alliance Emergency Department, Healthcare for the Homeless, CASPAR's 1
Ms. Semonoff stated that challenges include the huge gap between market rents and allowable Fair Market Rent HUD permits which makes finding housing units in Cambridge very difficult. She stated that homelessness is a regional problem so shelter beds are always filled evens as some people move to housing. She stated that individuals and families are stuck in transitional housing. She stated that HUDs focus on permanent housing means less reliable funding for supportive services and noted the difficult policy choices about where to give priority for affordable housing.
Brian Murphy then gave a brief overview of the housing and homeless environment. He stated that to supplement what Ms. Semonoff has stated, the Community Development Department faces is that Cambridge is in a hot housing market. He stated that what a lot of it comes down to is that for each individual unit it is a zero sum game. He stated that the issue of homelessness is difficult for communities because it is an unmet need that will not go away. He stated that because it is a regional problem, Cambridge cannot solve all of the problems. Mr. Murphy explained that in the Inclusionary Zoning program the Community Development Department has a preference pool for people. He stated that preference points that are used to determine need. He stated that this means that we are treating people differently when they come before us. He stated that Inclusionary Zoning targets people from area medium income and it has been a successful program. Mr. Murphy stated that people who have Section 8 can also come into Inclusionary units. He stated that there are challenges with HUD and explained that when looking at what HUD gives for a Section 8 voucher it does not come close to the rents that are asked in Cambridge. He stated that a Section 8 voucher for a one bedroom $1196.00 versus $2,385 rent. Mr. Murphy stated that the Cambridge Housing Authority is terrific partner but they are hamstrung by federal requirements that do not work in Cambridge.
Ellen Semonoff stated that there is a huge gap between actual pricing in Cambridge and what HUD will allow. She stated that the homeless in Cambridge are not the same people that were homeless in 2005. She noted that a significant number of people have made their way from being in a shelter but overall numbers have not shifted in that time. As it relates to homeless families, Ms. Semonoff stated that in 2008-2009 there was a huge increase. She stated that this increase is because The Gateway Hotel on Route 2 housed families. She said that once the motel was closed, the numbers of homeless families dropped dramatically. Again, there has been some increase in family homelessness but it is important to note that the diagram on page 3 just shows how many units are devoted to family housing. She noted that the number of shelter beds and transitional housing units is relatively stable from between 2005 and 2014. Ms. Semonoff stated that some other services that are funded for homelessness include prevention services, street outreach and drop-in services and case management and supportive services. She noted that CASPAR has been taken over by Bay Cove which is an organization that helps with the continuum of services. She explained that Bay Cove has continued outreach services which operate 100 hours over the course of a week. She stated that there is some challenge because of HUD shifting funding from supportive services to housing. She stated that as it relates to future challenges, the concern is that there may be a challenge to the provision services.
Councillor Carlone asked how much is budgeted for homelessness services. Ms. Semonoff stated that she would forward that information to the committee.
Chris Cotter stated that CDD is working with the Human Services Department to acquire affordable housing units. He noted that many of the issues go back to funding. He stated that CDD works with many organizations including as the Cambridge Housing Authority, Heading Home and CASCAP. They have looked at setting aside units in other buildings. As it relates to permanent housing options, Mr. Cotter noted that most of those options have received some type of assistance from the Affordable Housing Trust. He stated that there are 14 units coming forward. He stated that one challenge when looking at conversion of a larger building is that there are often zoning permits that are needed. He stated that CDD has been trying to figure out how to match the inclusionary units in private buildings with those coming out of homelessness as well as matching voucher assistance that is available. The goal is to make an easier path out of transitional housing.
Ms. Semonoff stated that another obstacle is that 1/3 of Section 8 vouchers are being used in other communities. She noted that HUD has determined that although the city does not have to take someone currently housed out of their units, we can only re-rent in Cambridge. She stated that some of the units that the city is able to access are in other communities and if we cannot find units to access in Cambridge, the city will lose that funding going forward.
Superintendent Steve Williams stated that the CPD realized that the way in which the department was dealing with homeless was not benefitting anyone. He stated that CPD was working in a reactionary mode that did not help the homeless population. He stated that they changed their efforts in dealing with the homeless population. This result of this effort is the Homeless Outreach Unit. He stated that Officer Helberg has the ability to speak with the homeless population and develop trust level. He stated that the goal is not to wait until the CPD receives a call of service to deal with homeless but to reach out to the homeless to determine their needs. He stated that the CPD determined that there was a group of 27 homeless individuals who were the most problematic and who kept coming to the attention of the CPD. He stated that the Homeless Outreach Unit began to work with that group to get services that were desperately needed. He stated that within three months that population was reduced by 11% due to the death of three of those individuals. He stated that the CPD began to work with service providers trying to these homeless individuals' medical services and housing. He stated that the criteria for housing was very strict in 2009. The providers were tasked with identifying housing and worked tirelessly. He noted that 11 of the remaining 24 homeless individuals were permanently housed. He noted that CPD saw changes and recognized that some of the pockets of traditional homeless waxed and waned. This did not deter CPD from their direction. He said that what has changed in the last 1 ½ years is some of the case management and progress and assistance by the Court.
Officer Eric Helberg stated he is excited about what has happened over the last couple of years. He stated that along with policing efforts, the CPD the Homeless Outreach Unit has also transformed itself into social workers. He stated that through tireless efforts, they were able to create partnerships. He noted the intricacy of the system ranging from ambulance, housing, health care and psychological services. He stated that communication is key and they have created a fantastic network that has allowed CPD to identify the homeless. They are now able to contact service providers. They have found that it has worked incredibly well to get some of these people housed. He stated that CPD works with individuals to get them into substance abuse programs and in almost all cases, they have met with fantastic success. They also provide follow-up services. Officer Helberg stated that he meets regularly with people now housed to ensure that they remain housed and do not revert to old habits. He noted that CPD receives calls from building managers who may have concerns and have been able to intervene in some cases to keep these individuals housed. He noted that the transformation from 2007 is dramatic and that the path forward is a positive direction. They have focused on social policing as well as the law enforcement aspect.
Officer Matt Price added that the case management approach has allowed them to brainstorm and think out of the box. He stated that classic law enforcement techniques were not working. He stated that the Homeless Outreach Unit has identified people to be sent for treatment and then visited with social workers to ascertain whether the person was prepared to continue in a longer treatment program. He stated that they have advocated to the District Attorney's Office for some homeless individuals who have had criminal charges and have stayed in programs. He stated that some participants have been sober for six months. He stated that he is a liaison to Cambridge Drug Court in order to better understand the drug culture. He stated that this is a method of trying to leverage people to treatment and support them at the same time.
Superintendent Williams stated that due to the efforts of Officers Helberg and Price expanding their roles into the case management aspect, it has opened the door to the entire Cambridge Police Department to access the work of these officers. He stated that Officers Helberg and Price are the "go-to" officers when other police officers encounter a homeless individual in a bad state. Officers Helberg and Price can then bring this person into the system to get them the help they need.
Councillor McGovern stated that this is tremendous program and a great model. He asked if it would be beneficial to involve social workers or case workers to work the streets in partnership with the CPD. These positions could potentially be supported financially by the city. He stated that this may break down some of the trust issues that are present. Officer Helberg responded that the CPD employs a full-time social worker. He added that the more manpower, the better. He stated that many homeless have told him that the CPD is nicer than other places. Superintendent Williams stated they are establishing parameters of behavior so that people can understand the consequences of negative behavior.
Councillor McGovern stated that the City Council wants to hear from the CPD what is needed to do their jobs and do their job better. He stated that it is important for the CPD not to be shy when stating their needs to address this problem.
Vice Mayor Benzan thanked the service providers and city staff for their work around this particular issue. He stated that he met with people from the Cambridge Community Center which has program that works with families of homeless children. He stated that one challenge they encounter is that they have heating system that is not working. He noted that service providers are struggling for resources and that there are about a dozen homeless children that have to be transferred to the program. He stated that he also met with people from the Salvation Army and the conversation was about supporting homeless persons who are struggling with substance abuse. He stated that they spoke about having a vigil in May where the homeless community is invited to attend and feel supported. He stated the challenge to the elderly and disabled population that do not qualify for inclusionary zoning. This population is increasingly becoming at risk. He stated that the elderly and disabled are competing with the homeless population as well. He stated that it is important to take the elderly and disabled residents into consideration when thinking of housing for the low income in the city.
Councillor McGovern then spoke about the waiting list for affordable housing and the fact that it will be closed for a period of time during property rehabilitations that are ongoing. He stated that the downside of the rehab of the buildings is that the waiting list will be stagnant for quite some time. He noted the importance of the progress and recommendations but asked those present to keep in mind how many residents the City has lost in 9 years.
Ms. Semonoff stated that the City looked at the expansion of permanent supported housing very early on when HUD put out a lot more money. She stated that because of the significant increases from year to year, the City may get new money to cover only five additional people. She stated that the dollar amount for supportive services is about 12% currently. In the application that was recently submitted they are hoping that there will be no additional cut in supportive services. They anticipate 2 or 3 years from now we may see the funding contract. Councillor Carlone asked how the City Council can help. He stated that while the Human Services Department works through the City Manager's Office, it is imperative for the City Council to know how it can help. He stated that it would be great to have list. He stated that Cambridge is a wealthy city at the moment and this is the golden window. He spoke about the low tax rate and his belief that there needs to be a ballot question. Brian Murphy stated that a policy change that can be made is to research if there are zoning changes that could make conversion easier. He noted that this would take less time, risk and uncertainty to place that supportive housing.
Councillor Carlone stated that there are properties coming in from massive upzoning that are Kendall Square oriented. He stated that there is no reason that within that square footage, a segment could be related to this program. This could be scattered system within the 40 acres of Kendall Square. He stated that members of the Planning Board impressed him when they said at the Volpe site there will be 15% affordable housing. He questioned why not make another 15% for moderate income families.
Councillor McGovern asked what can be done to create more transitional housing. He inquired of Ms. Semonoff what that housing looks like. Ms. Semonoff responded that the difference between transitional and permanent housing is your connection to your unit. Transitional housing comes with the expectation that you will move onto permanent housing.
Councillor McGovern asked if the City is required to conduct another ten-year plan. Ms. Semonoff responded that at the moment HUD is not implementing the requirements for a 10-year plan but does expect the city to do planning. The Corporation for Supportive Housing is among the people to give technical assistance for the Pay for Success bonds. The City was given some HUD funding to facilitate a community planning process with the provider community with the theory that one of things that we need to do is work with those that deliver the services to address the issues. One thought is that engaging in the process with providers makes a lot of sense. It will allow for a broader set of different interests and then take that and look at the process to be used.
Hassan Rashid asked if the 10-year plan will be recalibrated or scratched. Councillor McGovern stated that this question was answered by Ms. Semonoff. Mr. Rasid asked what has been been accomplished in the last ten years. Ms. Semonoff referred Mr. Rashid to Attachment B. Councillor McGovern stated that a new plan could build off the Ten-Year Plan as well as the addition of new goals. Mr. Rashid stated that he has been advocating for the conversion of the Foundry Building to establish a type of city mission for use as a service center for the homeless. He stated that the Cambridge Redevelopment Authority is in charge of what is going to happen to that space. He stated that the Foundry Building is ready to go with basic repairs and is a great place to address in the issue of homelessness. He stated that the Income Insecurity Committee has discussed looking at doing something similar to Boston. He stated that the City Council must ensure that all options are given equal consideration for the use of the Foundry Building.
Councillor McGovern stated that he would like to look at educational outreach. He suggested something similar to the initiative of former City Councillor Marjorie Decker's on domestic violence.
ORDERED: That the City Manager be and hereby is requested to develop an educational campaign around the issue of homelessness.
Bill Mergandahl stated that there has been a dramatic change in the situation because the police, providers and organizational efforts have been tremendous. He stated that the City still suffers from high users of emergency services, or HUES. A study showed that last year, fifteen unique individuals accounted for 8% of transports which equal sixty times per year each. This has a ripple effect across services. It's a cycle that we have to work together to break, but now we have different organizations to reach out to.
Councillor Mazen stated that the point of a ten year plan is to reevaluate before you reach the end of the time period in order to see the short-term and long-term needs. Ellen Semonoff stated that is makes
more sense to fold the plan into a city-wide plan that looks at services, zoning and other relevant areas. These are residents of the city, so isolating them from other city planning isn't good; a broad planning process incorporates the interests of this population into the greater interests of the City. Councillor Mazen replied that long term plans are important because if you plan around today's problem, other problems will manifest tomorrow. Having a plan with a supplemental conversation along side is beneficial. We've come to the end of the ten-years and it's sad because we're not close to the solution.
Councillor Mazen made motion that the City Manager and staff propose 20 year goals and submit them as a draft. Brian Murphy stated that we should do that in the comprehensive plan. This is the time to be willing to be aspirational and say "what is perfect Cambridge?" The comprehensive plan is the place where you are supposed to raise those goals. Councillor McGovern stated that, given that it is a big ask, he'd like to hold off on the motion so that we can discuss it with the City Manager and be organized about it.
Councillor Mazen stated that he does not know what types of conversations we plan to have as it pertains to the Master Plan. The 20-yar view can be matter of fact and don't have to be aspirational. This will be instructive as policy makers is that what we can aspire to in 20 years could be similar to what we have now. Councillor Mazen stated that he advances this to be helpful. That the city doesn't do it is a mistake. Councillor Carlone stated that this could be part of the budget. Councillor Mazen stated that the fact that we don't do it is a huge oversight and personally confusing. Mr. Murphy stated that this will be component of the comprehensive plan.
Councillor McGovern asked if a resident loses their residency status if they have been placed in a shelter or transitional housing outside of the city. Christ Cotter stated that for CDD programs, they look at the last permanent address. If noted that if they have a Section 8 certificate and they move to Everett, they are viewed as an Everett resident.