The final report of the Senate Study Committee on Homelessness

THE FINAL REPORT OF THE SENATE STUDY COMMITTEE ON HOMELESSNESS
COMMITTEE MEMBERS

Senator Renee Unterman Chair District 45

Dr. David Holland Fulton County Board of Health

Commissioner Frank Berry Dept. of Community Health

Senator Donzella James District 35

Mr. George Canavaggio Dept. of Veterans Service

Ms. Becky Kurtz Atlanta Regional Commission

Ms. Carmen Chubb Dept. of Community Affairs

Ms. Cassandra Price Department of Behavioral Health and Developmental Disabilities

Ms. Abby Cox Division of Aging Services

Ms. Virginia Pryor Division of Family and Children Services

Mr. Brian Dowd Dept. of Community Health

Ms. Barbara Reddick SW Georgia Regional Commission

Mr. Blake Fulenwider Dept. of Community Health

Senator Michael Rhett District 33

Dr. Terri Timberlake Department of Behavioral Health

and

Developmental Disabilities

Prepared by the Senate Research Office 2017

TABLE OF CONTENTS
Committee Focus Creation and Duties.................................................................................................................1 Background.................................................................................................................................................................2 Committee Testimony and Findings.......................................................................................................................4
Meeting 1 September 19 2017.................................................................................................................4 Meeting 2 October 17 2017......................................................................................................................5 Meeting 3 November 7 2017....................................................................................................................7 Meeting 4 November 27 2017.................................................................................................................8 Committee Recommendations...............................................................................................................................9 Signature Page.........................................................................................................................................................10

COMMITTEE FOCUS CREATION AND DUTIES
The Senate Study Committee on Homelessness (Committee) was created by Senate Resolution 352 to understand the extent of the problem of homelessness in Georgia and to explore possible long-term solutions.
Senator Renee Unterman of the 45th chaired the Committee. The other members included Senator Michael Rhett of the 33rd Senator Donzella James of the 35th Commissioner Frank Berry Ms. Becky Kurtz Mr. Blake Fulenwider Mr. Brian Dowd Ms. Carmen Chubb Ms. Barbara Reddick Ms. Abby Cox Interim Director Virginia Pryor Dr. Terri Timberlake Ms. Cassandra Price Dr. David Holland and Mr. George Canavaggio.
The Committee held four meetings in total one at the Coverdell Legislative Office Building in Atlanta Georgia on September 19 2017 and three others at the Georgia State Capitol also located in Atlanta Georgia on October 17 2017 November 7 2017 and November 27 2017.
The Committee heard official testimony from the following Mr. Jack Hardin Esq. Co-Chair of the Regional Commission on Homelessness Mr. Protip Biswas Executive Director of the Regional Commission on Homelessness Mr. George Chidi Social Impact Director for Central Atlanta Progress Mr. David Whisnant Director of the Office of Homelessness and Special Needs Housing for the Department of Community Affairs (DCA) Ms. Debra Nesbit Associate Legislative Director for the Association County Commissioners of Georgia (ACCG) Ms. Veda Brooks Appeals Officers for the Georgia Department of Veteran Service (GDVS) Ms. Letitia Robinson Director of Supported Housing for the Department of Behavioral Health and Developmental Disabilities (DBHDD) Rev. David Lewicki Co-Chair of Presbyterians for a Better Georgia Ms. Elizabeth Appley Esq. Public Policy Advocate with Presbyterians for a Better Georgia Mr. Frank Mulcahy Executive Director of the Georgia Catholic Conference Ms. Kimberly Parker Executive Director of Central Outreach and Advocacy Center Mr. Jay Sanders Assistant Commissioner of Inmate Services of the Georgia Department of Corrections (GDC) Mr. Scott Maurer Assistant Commissioner of the Department of Community Supervision (DCS) Mr. Avery Niles Commissioner of the Department of Juvenile Justice (DJJ) Mr. Eric McGhee Grants Program Manager for the Department of Education (DOE) Ms. Cathryn Marchman Esq. Executive Director of Partners for HOME Mr. Tim Schrager CEO of Perennial Properties Inc. Mr. Jules Stine with Park Vista Partners LLC Mr. Tom Andrews President of Mercy Care Mr. Bill McGahan Founder of Georgia Works and Ms. Allison Ashe Executive Director of Covenant House Georgia.
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BACKGROUND
An Overview of Georgia s Homeless Population
According to the Point-in-Time Count completed in January of 2017 a total of 10 373 individuals were considered literally homeless in the Georgia representing a 25 percent decrease from 2015.1 Of the 10 373 literally homeless 3 692 were considered unsheltered and 6 681 were residing in either an emergency shelter or transitional housing. Further on the night of the count 10 percent of the homeless population was reported as experiencing chronic homelessness.2

Table 1. Georgia s Literally Homeless Population

Georgia s Literally Homeless Population Single Night (Point in Time Count)

Housing Status Unsheltered

Number of Individuals per Year

2013

2015

2017

8 450

5 803

3 692

Emergency Shelter or Transitional Housing

8 497

7 987

6 681

Total
Change from previous count (%)

16 947 -15%

13 790 -19%

10 373 -25%

Source The Department of Community Affairs as of November 29 2017.

Table 2. Sheltered and Unsheltered Homeless Trends from 2011-2017
Sheltered and Unsheltered Homeless Counts 2011 through 2017

15000 10000
5000 0

11384 2011

8450
2013 Sheltered

5803 2015 Unsheltered

3692 2017

Source The Department of Community Affairs as of November 29 2017.

1 The Point-in-Time count is a HUD mandated count of sheltered and unsheltered homeless people on a single night in January. Each count is planned coordinated and carried out locally. Literally homeless is defined by HUD as an individual who has a primary nighttime residence that is a public or private place not designed for or ordinarily used as a regular sleeping accommodation for human beings (i.e. unsheltered) or an individual who resides in an emergency shelter or who is in transitional/supportive housing designated to provide temporary living arrangements (i.e. sheltered). 2 Chronic homelessness is defined by HUD as someone experiencing continuous homelessness for at least one year or at least four times in the past three years with their total time in shelters or on the street adding up to over one year and has a disabling condition.
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With respect to Georgia s homeless population the Department of Community Affairs (DCA) indicates that insufficient income and lack of affordable housing represent the leading causes of homelessness.3 Domestic violence is the leading cause of homelessness amongst women. Further poverty serves as a unifying condition particularly in rural areas. Relative to unaccompanied individuals a lack of needed services coupled with mental illness or substance abuse are significant contributing factors to homelessness.
The Committee recognizes that the underlying causes of homelessness are complex and expansive. Based on the testimony offered the Committee primarily focused its attention towards affordable housing mental illness and lack of services criminal background barriers to housing rural community housing needs and youth homelessness.
State Solutions to Homelessness Nationally and within the last year the number of individuals experiencing homelessness has decreased by two percent arguably due to an aggressive commitment by state legislatures governors and city councils to end homelessness.4 Specifically Oregon Seattle Louisiana California and Virginia have taken more of a comprehensive approach to the problem. Examples of various state initiatives and accompanying legislation is provided below.
Oregon During the 2017 Legislative Session Oregon passed House Bill 2724.5 HB 2724 directs the Housing and Community Services Department to develop and implement the Rent Guarantee Program to provide incentives and financial assistance for unpaid rent eviction and property damage to landlords who rent to graduates of a qualifying tenant education program. Eligible tenants include those at or below 60 percent the Area Median Income (AMI) and those facing various housing barriers such as poor credit criminal history or history of eviction.
Seattle Committed to providing affordable rental housing for low-income Seattle residents the Seattle City Council proposed and voters approved a ballot to increase property tax levies to finance affordable housing for low-income households.6 Designed to address the immediate needs of residents the initiative provides short-term or medium rental assistance for those households with income up to 50 percent of the AMI and who are at an immediate risk of homelessness or have recently become homeless.
Louisiana Following the devastating effects of Hurricane Katrina in 2005 which left countless Louisianans homeless the Louisiana Department of Health and the Louisiana Housing Authority partnered to establish a Permanent Supportive Housing program.7 The program was designed to reduce homelessness particularly amongst those with disabilities and was funded by the Federal Low-Income Housing Tax Credits and the Community Development Block Grant. Recognizing that existing funds were insufficient to sustain the
3 DCA has indicated that insufficient income can be caused by both unemployment and low wages. 4 http //endhomelessness.org/wp-content/uploads/2016/10/2016-soh.pdf 5 https //olis.leg.state.or.us/liz/2017R1/Measures/Overview/HB2724 6 http //seattle.legistar.com/LegislationDetail.aspx ID 3034190&GUID BC9DB7D7-7CE4-4CE0-A67C-94B38E88E5C9&FullText 1 7 https //www.kff.org/report-section/linking-medicaid-and-supportive-housing-issue-brief/
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program long-term the state used Medicaid state funding authority to cover tenancy support services for program participants meeting the institutional level of care criterion.
California Cognizant of the mental health needs of those rendered homeless California passed Assembly Bill 1618 during the 2016 Legislative Session.8 AB 1618 establishes the No Place Like Home Program to be administered by the Department of Housing and Community Development. The program will distribute nearly $2 billion to counties as deferred payment loans to buy build and preserve permanent supportive housing for those individuals who are eligible for services under the Mental Health Services Act and who are homeless chronically homeless or at risk of chronic homelessness.
Virginia Virginia continues to demonstrate its commitment to homelessness prevention and homelessness solutions through significant state funding. Through the Homeless Solutions Grant Virginia has allocated approximately $7 000 000 for emergency shelter operations street outreach rapid re-housing temporary rental assistance and associated case management activities.9 Additionally through the Homeless Prevention Program the state has allocated approximately $4 500 000 for temporary rental assistance and case management for low-income households at imminent risk of becoming homeless.
COMMITTEE TESTIMONY AND FINDINGS
Meeting 1 September 19 2017 The Committee s first meeting was held at the Coverdell Legislative Office Building in Atlanta Georgia and included a generalized overview of the state of homelessness in Georgia. The meeting included discussion of homelessness predominantly from a state agency lens. The following individuals provided testimony
Mr. Jack Hardin and Mr. Protip Biswas United Way of Greater Atlanta Mr. George Chidi Central Atlanta Progress Mr. David Whisnant Department of Community Affairs (DCA) Ms. Debra Nesbit Association County Commissioners of Georgia (ACCG) Ms. Veda Brooks Georgia Department of Veteran Service (GDVS) and Ms. Letitia Robinson Department of Behavioral Health and Developmental Disabilities (DBHDD).
Mr. Hardin and Mr. Biswas led the Committee s first meeting and testified that since 2011 Atlanta s total homeless count has reduced by over 40 percent. Mr. Hardin argued that anything that can be substantially reduced can ultimately be eliminated. Further testimony revealed that as a result of the United Way s Regional Commission on Homelessness collaborative efforts with governmental agencies businesses faith based organizations and stake holders veteran s homelessness has dropped sixty-eight percent and unsheltered homelessness has dropped sixty-seven percent since 2011. Although homelessness is declining its cost to the city and state remains high. Mr. Hardin testified that in the city of Atlanta alone chronic homelessness is costing the state and local taxpayers approximately $24 million in emergency room visits $37 million in in-patient hospital stays $1.8 million in jail stays and $347 000 in misdemeanor arrests. Fortunately studies have shown that increasing supportive housing placements can decrease taxpayer costs. As such it was recommended that the Committee focus their efforts on increasing

8 https //leginfo.legislature.ca.gov/faces/billTextClient.xhtml bill_id 201520160AB1618 9 https //rga.lis.virginia.gov/Published/2014/RD372/PDF

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supportive housing placements for people with mental illness available through the Georgia Housing Voucher and Bridge Funding Program.
Additionally Mr. Hardin testified that most adults who are chronically homeless do not qualify for Medicaid. As such he recommended that the Committee explore the implementation of a Medicaid waiver such as a 1915(i) targeted to the chronically homeless and specifically includes housing related activities and services.
Mr. Chidi testified that currently downtown Atlanta is disproportionately bearing the burden of homelessness. He stated that homeless individuals prefer seeking shelter in cities with an abundance of services and often travel from rural areas around the state in search of services. Consequently Mr. Chidi argued for a statewide approach to the problem.
Mr. Whisnant testified similarly to Mr. Hardin and mentioned that one of the reasons why homelessness is declining is due to individuals being placed in permanent housing. Further Mr. Whisnant emphasized the importance of the State Housing Trust Fund for the Homeless (SHTF). He mentioned that SHTF dollars allow agencies to be funded for critical activities not directly funded by HUD.
Ms. Nesbit s testimony focused on the impact of homelessness on offenders and noted that there are few if any re-entry services for low level offenders. She mentioned that lack of services is seen predominately in the rural areas of Georgia.
Ms. Brooks focused her testimony on the impact of homelessness on veterans. She testified that 2 766 out of 681 840 Georgia veterans are homeless. Ms. Brooks indicated that often times homeless veterans are ignorant of the services available to them upon exiting the service. She argued that veterans would greatly benefit from transitional education surrounding housing and employment prior to leaving the service.
Ms. Robinson provided an overview of DBHDD s residential and supported housing initiatives and primarily concentrated on the current status of the Georgia Housing Voucher Program (GHVP) and Bridge Funding Program.
Meeting 2 October 17 2017 The Committee s second meeting was held at the Georgia State Capitol in Atlanta Georgia and included a discussion which sought to identify specific populations within Georgia that are at greatest risk for homelessness. The following individuals provided testimony
Rev. David Lewicki and Elizabeth Appley Esq. Presbyterians for a Better Georgia Mr. Frank Mulcahy Georgia Catholic Conference Ms. Kimberly Parker Central Outreach and Advocacy Center Assistant Commissioner Jay Sanders Georgia Department of Corrections (GDC) Assistant Commissioner Scott Maurer Department of Community Supervision (DCS) Commissioner Avery Niles Department of Juvenile Justice (DJJ) and Mr. Eric McGhee Department of Education (DOE).
Rev. Lewicki and Ms. Appley echoed previous presenter testimony and noted that Georgia is suffering from a dire shortage of affordable housing in urban rural and suburban areas and argued that affordable housing is a key ingredient to eradicating homelessness. They indicated that over 300 000 of Georgia
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households spend at least 50 percent of their household income on housing costs. Further approximately 21.4 percent of all Georgia households are defined as severely cost burdened. Paradoxically housing ownership has declined while the number of rental households continues to rise. Rev. Lewicki testified that moderately priced rental housing is disappearing in Georgia. In fact in the last ten years rental units available for under $800 per month have declined by 261 000 while units available for more than $2 000 a month have soared by 1.5 million. From a metro perspective Fulton County ranks within the top 10 cities in the country with the worst affordability trend. Moreover of the large counties in the U.S. with the biggest affordability gap for extremely low income (ELI) renters Gwinnett Cobb and DeKalb represent three of the top 10 counties.
Representing the Georgia Catholic Conference Mr. Mulcahy testified that faith communities in the state often shoulder the burden of serving the needs of the homeless. Mr. Mulcahy indicated that between November 1 and March 31 the Catholic Shrine of the Immaculate Conception provides overnight assistance sack lunches and dinner to roughly 35 men. These efforts are funded by volunteer contributions.
Ms. Parker testified on behalf of Central Outreach and Advocacy Center (Central OAC) and indicated that Central OAC offers various supportive services to homeless individuals that are designed to address immediate needs. She testified that helping individuals obtain state-issued identification and birth certificates are some of the most beneficial services provided. Further Ms. Parker testified that while Central OAC strives to provide the homeless with access to mental health treatment additional funding is needed in light of recent increases in homeless mental illness. She mentioned that schizophrenia bipolar disorder and depression are the most common mental illnesses exhibited by those whom Central OAC serves.
Commissioner Avery Niles along with Assistant Commissioners Jay Sanders and Scott Maurer testified jointly and on behalf of the state s criminal justice agencies. Each presenter indicated that substance abuse often serves as the precursor to incarceration and incarceration serves as a substantial risk factor for homelessness. Mr. Maurer testified that the DCS participates in the ReEntry Partnership Housing Program along with GDC and DCA. Funded by state dollars approved housing providers are paid to provide housing room and board for eligible placements. Housing providers serving participants with mental illnesses are compensated at a higher rate and are equipped to provide for recommended treatment. Mr. Maurer testified that under the guidance of a Community Supervision Officer participants are able to obtain a license find a job and find a home. Like other presenters he indicated that the biggest challenge DCS faces is lacking of housing often due to the offender s criminal background.
Assistant Commissioner Sanders and Commissioner Niles indicated that in addition to lack of housing their agencies face challenges with lack of behavioral services. Commissioner Niles estimated that roughly half of the juveniles housed in his Department battle with substance abuse. The Commissioner suggested that focus be placed on local resources and that funding continue.
Mr. McGhee testified on behalf of DOE and indicated that Georgia has a growing student homelessness problem. In fact the number of reported homeless students in the state has increased every year since 2011. As of 2016 39 755 students were identified as homelessness in the state with the majority of those students being in kindergarten first and second grade. Mr. McGhee emphasized that while student homelessness is rising federal award money used to support students experiencing homelessness has decreased by 22 percent.
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Meeting 3 November 7 2017 The Committee s third meeting was held at the Georgia State Capitol in Atlanta Georgia and included discussion primarily focused on the challenges housing providers face relative to homelessness. The following individuals provided testimony
Ms. Cathryn Marchman Esq. Partners for HOME Inc. Mr. Tim Schrager Open Doors Mr. Jules Stine Park Vista Partners LLC Mr. Tom Andrews Mercy Care Mr. Bill McGahan Georgia Works and Ms. Allison Ashe Covenant House Georgia.
Ms. Marchman testified on behalf of Partners for HOME a nonprofit organization charged with the task of managing the Atlanta Continuum of Care (CoC) for homeless services.10 Ms. Marchman indicated that in the past the way in which homeless individuals accessed services was inefficient. With goals to end veteran homelessness by 2017 chronic homelessness by 2019 and youth and family homelessness by 2020 Partners for Home has orchestrated a new approach that focuses on disrupting the old system identifying the right housing intervention solution by population realigning and leveraging financial resources and viewing the local homeless response as a coordinated system of homeless assistance options. Additionally Ms. Marchman testified that as of this year the total number of chronically homeless people in Atlanta has reduced by 75 percent and the total number of unsheltered homeless individuals has reduced by 61 percent. Because of such success the city recently approved a homeless opportunity bond up to $25 million to be matched dollar for dollar by the private sector resulting in a total of $50 million. Like other presenters she indicated that funding must continue in order to meet longterm needs.
Mr. Schrager testified on behalf of Open Doors a partnership between the Atlanta Real Estate Collaborative and Enterprise Community Partners which connects property owners with screened tenants who have the support of service providers. When asked what the biggest barrier to housing was Mr. Schrager responded that a person s criminal background served as the greatest threat to placement. He mentioned that landlords are afraid of being sued for overlooking someone s criminal past and providing an exception.
Mr. Stine testified on behalf of Park Vista Partners LLC and from the prospective of a for-profit landlord. He advocated for a trusting relationship with quality supportive housing case management providers.
Mr. Andrews testified on behalf of Mercy Care. Mercy Care is local nonprofit that provides healthcare to the homeless uninsured and ELI individuals in Fulton and DeKalb County. Mr. Andrews stated there is a severe lack of funding for behavioral health services and the demand for the services are great. As of FY 2017 89 percent of Mercy Care s behavioral health visits were homeless patients.
Mr. McGahan testified on behalf of Georgia Works. Georgia Works is privately funded and houses chronically homeless men for up to one year while they participate in transitional work. Additionally the men receive case management relapse prevention adult education and computer skills life skills training financial management training and career developing training over the course of their stay. Mr. McGahan
10 Atlanta s CoC was created in 2013 by Mayor Kasim Reed and is a local collaborative that coordinates housing services and funding for homeless families and individuals. It consists of the Governing Council CoC membership and Partners for Home Inc.
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indicated that a total of 360 participants have graduated from the program resulting in thousands of dollars in cost savings to both the city and state. Ms. Ashe briefly testified on behalf of Covenant House Georgia. Covenant House Georgia provides shelter and other supportive services to homeless youth in Atlanta. Ms. Ashe indicated that there are approximately 3 300 homeless youth on the street in a typical summer month in metro Atlanta with over 54 percent of them reporting past involvement with the criminal justice system. Further Ms. Ashe stated that approximately 42 percent of their youth have reported a physical disability mental health illness or substance abuse problem. The cost to serve a youth with a mental health need residing at the shelter is roughly $1 250 per month. Meeting 4 November 27 2017 The Committee met for a fourth and final time at the Georgia State Capitol to discuss its findings and recommendations based on the testimony heard at previous meetings.
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COMMITTEE RECOMMENDATIONS
Based on the testimony and findings previously provided the Committee makes the following recommendations
1) The Committee recommends that the Department of Community Health explore opportunities to leverage state funds by accessing federal Medicaid funds to support individuals who are currently or at risk of homelessness.
2) The Committee recommends an increase in state funding to the State Housing Trust Fund for the Homelessness (SHTF) in order to enable DCA to expand existing homelessness programs as well as to explore additional options and opportunities to maximize federal funds to address homelessness in Georgia.
3) The Committee recommends allocating funding to support DCA s expansion of the Section 811 Project Rental Assistance Demonstration Program and mixed income properties in high density counties.
4) The Committee recommends increasing funding for the availability of supported housing placements for Georgia Housing Voucher Program participants.
5) The Committee recommends allocating funding for DBHDD to expand the Georgia Housing Voucher and Bridge Program to include non-settlement criteria individuals with a substance use diagnosis.
6) The Committee recommends allocating funding to DBHDD for PATH ACT CST and ICM services to support the provision of replacement state-issued identification for enrolled individuals transitioning from correctional facilities.
7) The Committee recommends the creation of a statewide public-private partnership to serve as a clearinghouse of best practices information and resources that supports developing and sustaining local re-entry case planning collaboratives in every county. Such re-entry collaboratives should be designed to engage law enforcement community service boards legal services the faith community local non-profit organizations and behavioral health providers to provide case planning for individuals exiting correctional facilities with the goal of ending the expensive and ineffective cycle of individuals being admitted to the hospital incarcerated and released to homelessness.
8) The Committee recommends increasing state funding for private and/or nonprofit homeless shelters to provide increased educational and psychosocial supports for homeless youth.
9) The Committee appreciates the working relationship with the Georgia Apartment Association and would like to pursue new options of best practices that have worked successfully in other states. While the apartment rentals in the Metro Atlanta area are in short supply and higher costs the Committee feels that vouchers are still a realistic option and will aid in solving the issue of adequate temporary housing for the homeless. Further the Committee recommends that the state continue this ongoing relationship in a dedicated manner to continue to diminish homelessness in Georgia.
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Respectfully Submitted
THE SENATE STUDY COMMITTEE ON HOMELESSNESS
___________________________________________
Senator Renee Unterman Chair District 45
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