HomeMy WebLinkAboutAgenda - 04-24-2007-2cORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: April 24, 2007
Action Agenda
Item No. ,~ -C
SUBJECT: Ten (10) Year Plan to End Homelessness
DEPARTMENT: Housing and PUBLIC HEARING: (Y/N) No
Community .Development
ATTACHMENT(S):
Executive Summary
INFORMATION CONTACT:
Moses Carey, Commissioner
Tara L. Fikes, 245-2490
PURPOSE: To consider acceptance of the 10 Year Plan to End Homelessness in Orange
County.
BACKGROUND: In March 2005, the Orange County Partnership to End Homelessness
(Partnership) was formed to institute a countywide effort that will culminate in the development
and implementation of a Ten-Year Plan to End Homelessness in Orange County. Membership
included Orange County; the Towns of Chapel Hill, Carrboro and Hillsborough; Triangle United
Way, Orange Congregations in Mission; the Inter-Faith Council; OPC Area Program; the
Hillsborough Chamber of Commerce; and UNC.
' In October 2005, Orange County on behalf of the Partnership entered into a consultant
agreement with J-Quad and Associates, PLC to develop a Ten (10) Year Plan to End
Homelessness in Orange County. Since that time, the Partnership Steering Committee led by
County Commissioner Moses Carey, Jr. and Carrboro businessman Nathan Milian, the
Partnership Working Group, community focus groups, and graduate students from the .UNC
School of Public Health have worked with J-Quad to develop the County's 10 Year Plan that
was formally approved at the Partnership's March 14, 2007 meeting.
The main focus of the Plan is to end chronic homelessness, without excluding the needs of all
homeless individuals and families. To that end, the Plan contains five goals towards the
elimination of homelessness in Orange County.
Goal 1: Reduce Chronic Homelessness
Goal 2: Increase Employment
Goal 3: Prevent Homelessness
Goal 4: Increase Access to Services
Goal 5: Increase Public Participation in Ending Homelessness
The Executive Summary of the Plan is included with this abstract that provides more detailed
information regarding these goals. The full plan will be available under separate cover.
At this time, the original Partnership members are being asked to accept the final Plan as an
initial step toward implementation of the goals contained therein.
FINANCIAL IMPACT: Acceptance of this Plan does not have any direct financial implications.
However, it should be noted that additional resources will be necessary to fully implement the
strategies contained in the Plan.
2
RECOMMENDATION(S): The Manager recommends that the Board accept the 10 Year Plan
to End Homelessness in Orange County and direct staff to present information regarding future
critical decision points during the implementation stage of the Plan.
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To: Orange County,Board of Commissioners
Chapel HiII Town Council
Hillsborough Board of Commissioners
~ Carrboro Board of Aldermen
` Triangle United Way
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+ "~ This document rs the:: product of a two-year community eff ort to develop a campre-
hensive approach to addressing ,the problem of homelessness in Orange County.
Its origins lay rn the ;Bush administration's initiative to encourage a nationwide fo-
r cus on chronic homelessness. and the development of community plans to end
chronic homelessness within 10 years. The Orange County Partnership to Entl
Homelessness was'formed to meet that challenge through the combined efforts of
Orange County; the Towns of Hillsborough, Chapel Hill, and Carrboro; the.Triangle
+ United Way; Orange Congregations in Mission; '::Inter-Faith' Council for Social Ser-
e. vices; OPC Area Program; the Hillsborough Chamber of Commerce; and the Uni-
versi~y of North Carolina -Chapel Hill. We would like to take this opportuniry to
~~~~ ~ thank the members of the community who have giventheir time to participafe in
the process.
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'' The process began .with a November 2004 Roundtable Discussion to bring the
I issue of homelessness to the attention of the public. Orange and Durham Coun-
ties held a joint press conference to announce the development of 10-year Plans
to End Homelessness. in February 2005, at which Philip::, Mangano, Executive Qi-
rector of the US Interagency Council on .Homelessness spoke about the impor-
t' l tance of community-based efforts to address homelessness. A second Rountable
Discussion on Homelessness was. held in April !2005, vhich featured breakout
group discussions on community ownership of homelessness, preventing home-
' ~ lessness, and moving from homelessness to self-sufficiency. A' consultant was
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hired to help wrth the development of the 10-year plan ih September 2005 and a
Steering Commrttee;of over 60 people was formed. Eighteen focus group ses-
j 3 sions were held throughout the County in February 2006;-.and intensive interviews
along with a Community Forum conducted by a group of graduate students from
UNC's School of Pu61ic Health were conducted in April 2006. Over the Summer of.
E 2006, a series of subcommittees of the Steering Committee worked to develop he
t set of recommendations'' that are contained in this document. A wide. range of
community and busrress leaders; social service,agencies, County and Town staff,
~ local congregatrons;''citizens, and homeless individuals have participated in and
j,. "~ contributed to this effort.'
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The main:~ocus of the Plan is to end chronic homelessness, without excluding the
needs of all homeless individuals' and families. The focus on chronic homelessness
stemmed frem .the acknowledgement of Steering Committee members that chronic ~
homelessness .has the greatest impact'on the community, both in terms of its fiscal ~
costs and. its visibility on the streets. While ending chronic homelessness is the focus 9
of the plan, it should be emphasized that other sub-groups of homeless. persons will not
be :ignored: This: plan presents additional recommendations that look to serve the i
needs of all homeless families and individuals and work to prevent. homelessness,
shorten episodes of hamelessness, antl,rapidly re-house those who experience events '
that lead to homelessness. '
As Ce-Chairs of the Steering Cammittee we wish to thankthe members of the Commit-
tee-who have givenso freely of their time, the Working Group of County and Town staff ', o
and representatives of agencies involved in homeless services who have led this pro- j
ject, hose citizens of Orange County who have participated in the public meetings, and
the sponsors of the Parfriership. As the leaders of our community, we hope that you
will take this opportunity to review he results of this effort, adopt the plan for your juris-
diction, an~d,support the work of the Steering Committee in the coming. years to guaran- ,
tee the successful' implementation of the; plan. Your consideration and support are ap-
predated, ~ 4~
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Respectfully submitted;
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Moses Carey Nathan Milian ~°
Orange County President, N.R. Milian ,~
Board of Commissioners and Associates ~ I
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2. Nature of Homelessness in Qrange County ... :.:....:. .:...<.,. .,.:.::. :.:.....
2.1 Definitions of Chronic Hon-lelessness ....... ..........:
.... ..............................__....................:..4
~I 2.2 The Nature of Hornelessness ....................................:........:.....:..........:....................:.................. 5
`?.3 Pcasons for Hornelessness .....................................................:.................................................. : a
2.4 5ummanzation of Community Input ............. ......... .:............................... ....... .........19
2.5 Cost of Homelessness .:: :......................:: .......:: ....::::. ....::... .....:.':. .......::.......:' 30
' 3 Implementation Plan ; .......:: .......: : .....:::: .......:. ......::: ......::'. ...,...: ........; .......:.........:;36
3.1 Strategy/Tactic .....:........:.......:..............:........ ........:......................................:......:.........:......37
3.2 10-Year Plan Cost Schedule ............................:..............:.......................................................:46
3.3' Implementation Structure....`. ....::..: ...::::.. ....:;.. ,..:.:... ....::.. ...::.:.: ......::.....:.:..48
3,4 Evaluation of the Plan and the Implementation of HMIS ....:...........:..... ......:.. .................... 50
Appendix A: Summary of Focus Group Sessions :: :.:.::... : ......:. ......::. ..:....:. ....:::.: ......::.:...:.... 53
Appendix B: AOCA' Forum Recommendations:...: .. .....:... :.....:.: ...:::..: ...:..::'. .......:. ' .,...............:.. 72
APPendix C: Housing Development Scenario .............................................................................................. 77
Appendix D: Housing First Best Practices. :' :..:.... .:...::.. .:::..... .....,.:: .......:' .......:. .:...........:..:79
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} ~~ Vision-Through the
~ combined efforf of
elected officials,
service providers,
business leaders,
~ government agencies,
and the citizens of
`' Orange County,
chronic homelessness
in Orange County will
end within 10 years.
~„ Current and future
efforts to serve the
~~
~, `' needs of all homeless
-':,~ individuals and
homeless families will
continue to be
,~
supported toward the
goal of permanent
housing.
`5
A point=in-time survey was sponsored by the North Carolina Council for Coordinat-
ing Homeless Programs on January 26, 2005. The survey was conducted in 80
counties across the state and the resulting count for that one specific night was
11,165 individuals experiencing homelessness with 3,523 of them being children.
This was an increase from the December 2003 count of 9,867 individuals, including
1,287 children. The 2005 point-in-time count, required by HUD for the State Contin-
uum of Care, showed that in North Carolina 1,389 individuals were identified as ex-
periencing chronic homelessness. Nearly 13 percent of people identified as home-
less in North Carolina were considered to be chronically homeless and chronic
homelessness affected 1.63 persons per 10,000 residents.
Orange County reflects the complex characteristics and special needs of all home-
less people throughout the state. According to the County's 2006 Continuum of
Care, 237 individuals were identified as experiencing homelessness. Thirty-nine of
those individuals were chronically homeless. In the 2007 point-in-time survey, 224
people were identified as experiencing homelessness in Orange County. Seventy-
one of those persons were chronically homeless. Some homeless people require
limited assistance in order to regain permanent housing and self-sufficiency. Oth-
ers, especially people with physical or mental disabilities, require extensive and
long-term support.
Homelessness is a complicated problem rising from the changing social, economic,
political, and cultural conditions of the past 25 years. This plan makes systemic
changes to and integrates the homeless services system in order to end chronic
homelessness in Orange County and raises awareness of issues related to home-
lessness among all residents.
easoos fior conic o eiossness
Lack of Affordable Housing- Most homeless persons do not earn enough to cover
their basic needs, such as food and clothing, while others have very-low incomes,
just enough to sustain themselves. Paying a mortgage or market rate rent would be
impossible in their economic condition. In Orange County, an annual income of
$31,400 is needed to afford atwo-bedroom apartment, and minimum wage employ-
ees are required to work 117 hours per week to afford the same Fair Market Rate
unit.
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Insufficient Income- The most significant factor facing households when consider- viii~i
ing housing affordability and availability is income. The median household income
(MHI) for residents of Orange County, as reported in the US Department of Hous-
~, .
ing and Urban Development for 2006 was $61,700.
Inadequate Services- Chronic homeless people often have to deal with physical or
mental disabilities, physical or mental illness, alcohol and drug abuse, or domestic
violence. According to the 2000 Census, over 6,412 persons (5.42%) in Orange
County had a physical disability, 5,221 (4.42%) had a work disability, 3,883 (3.28%) `t
had a mental disability, 2,588 (2.19%) had a sensory disability, and 1,876 (1.59%) `
had aself--care disability. There were nearly 24,630 (20.83%) disabled people in
the county in 2000.
Inadequate Discharge Planning- When people are released from public institu-
tions or public systems of care without adequate discharge planning, they are. more
likely to become homeless. The populations included in this category would be peo-
ple discharged out of correctional institutions, hospitals, and mental health institu-
tions and children aging out of foster care.
host ®f Chronic amelessaess
According to the results of research conducted by the Center for Mental Health Pol-
icy and Services Research at University of Pennsylvania in 2001, the service re-
ductions resulting from supportive housing were reported to save the public
$12,145 annually for each individual placed. About 95 percent of the cost reduc-
tions are associated with reductions in healthcare and shelter services. Based on
estimates from examples across the country, Orange County spends up to
$1,600,000 per year on the chronic homeless population and could save up to
$860,000 per year through the implementation of the plan.
Plaoin as nai~sis of Locai aioss er~ieas
The lead organization for the Orange County Continuum of Care is the Orange-
Person-Chatham (OPC) Area Authority. The Partnership to End Homelessness
Steering Committee, a large group comprised of civic leaders, stakeholders, and
policymakers throughout the community, was created to guide the 10-year planning
process. The Partnership to End Homelessness Working Group, a collection of
town, county, and social service agency staff, is involved with the daily activities of
the 10-Year planning process and provides recommendations and updates to the
Steering Committee.
"Monthly
. Supplemental
Securiiy Income
(SSl) payments for
individuals are $603
in North Carolina. if
SS/ represents an
individuals sole
source of income,
$181 in monthly
rent is affordable,
while the FMR for a
one-bedroom is
$573."
- National Low-Income
Housing Coalition
An inventory of homeless service organizations in Orange County is provided in
Section 2 of the Plan. As reported in the 2006 Continuum of Care, there were 64
individual beds in emergency shelters, 24 individual beds in transitional housing,
and 90 beds in permanent supportive housing, including those for those experienc-
ing chronic homelessness in Orange County. There was an unmet need of 161 r
individual beds and 39 beds for those experiencing chronic homelessness in 2006.
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Ten-Year Ian tco s
Goals and Strategies for the Orange County 10-Year Plan were generated through the efforts
' of subcommittees formed from the Steering Committee of the Orange County Partnership to
~' `~ End Homelessness and participants from the Community Forum. They were designed to pro-
0 vide a comprehensive push to end chronic homelessness in Orange County, while maintain-
~~ ing a strong focus on serving the needs of non-chronic homeless families and individuals.
See Section 3.1 starting on page 37 fora complete list of tactics that accompany these stra~e-
gies. The goals and strategies of the Plan are:
i ~~~6 ~o _ R~d~ace Chi®nie 1i~melestness
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Strategy 1.1: Establish an assertive street outreach program that targets unsheltered
~! homeless people at natural gathering places throughout Orange County.
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Strategy 1.2: Establish an outreach .system in Northern Orange County that uses the
congregate feeding programs as a place to begin identifying those who are chronically
homeless in the rural part of the county.
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~ Strategy 1.3: Create an Assertive Community Treatment (ACT) Team that targets those
,;' who are chronically homeless and integrates the team with the above outreach~efforts.
'. Strategy 1.4: Ensure that both inpatient and outpatient substance abuse treatment is
R made available to those chronically homeless individuals who desire that service. If inpa-
bent treatment is necessary, make sure that permanent housing is not lost during the in-
patient stay.
''c Strategy 1.5: Identify strategies designed to address the needs for shelter and services
for individuals with complex behaviors that result in being banned from kitchen/shelter
" ' services.
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Strategy 1.6: Sheltered chronically homeless people will be able to move into perma-
4 Went housing by receiving the services necessary for them to obtain and maintain perma-
'' `; Went housing.
'~ ' Strategy 1.7: 40 units will be rehabbed/rented/built to provide permanent supportive
housing (including the use of Assertive Community Treatment Teams) for the chronic
~' I homeless in Orange County within the first 3-5 years of the plan.
~,
Strategy 1.8: Ensure that nonprofit developers have the organizational and financial ca-
paci~y to create new housing units within the community for the chronically homeless:
~~ a Strategy 1.9: Identify a wide variety of sites for housing the chronically homeless
throughout the county in the most fair and effective places within the county.
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Strategy 1.10: Establish a rigorous evaluation mechanism that measures the cost of
individuals who are chronically homeless before and after they are receiving housing and
~:_ . _ .._____, support services.
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Strategy 2.1: Current supportive employers will increase the number of home-
less people they hire.
Strategy 2.2: Potential employers will increase their understanding of those
who are homeless and hire homeless or formerly homeless individuals.
Strategy 2.3: Design and implement a model employment and training pro-
gram that focuses on individualized assessment, job goals, and placement ac-
tivities.
Strategy 2.4: Develop and implement a credentialing process designed to cre-
ate skills that prepare homeless persons for employment by establishing part-
nerships with local Chambers of Commerce to convene and educate about
homeless people and their employment needs.
Strategy 2.5: Enhance the skills development center that exists on Franklin
Street and develop a comparable site in Hillsborough.
Strategy 2.6: Design and implement a strategy targeting those who are aging
out of the foster care system as a way to prevent future homelessness by build-
ing asuccessful employment history and supporting ongoing financial literacy
efforts.
Strategy 2.7: Support and build on the "Wheels for Work" model that is cur-
rentlyonly available to work first participants.
Strategy 2.8: Increase the number and availability of child care slots in quality
child care centers for homeless families.
Strategy 2.9: Support transportation expansion plan in Chapel Hill Transit Sys-
tem and Triangle Transit Authority.
Strategy 2.10: Endorse ongoing discussions between Orange Transportation
and Chapel Hill Transit System.
~~all 3. _ ~re~~en~ F~~melessness
Strategy 3.1: Youth aging out of the foster care system will maintain arelation-
shipwith human services in order to prevent homelessness.
Strategy 3.2: Begin examining the data and relevant strategies designed to
work with unemancipated youth between the ages of 16-18 who are running
away.
Strategy 3.3: Those exiting prison, the military, hospitals and other health re-
lated institutions will not be discharged into homelessness.
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~.~ Strategy 3.4: Assess the actual need and develop step down housing for those exiting in-
patient substance abuse treatment services. This housing should create a safe and sup-
portive environment designed to promote recovery.
Strategy 3.5: Those with unstable housing will receive the necessary services to prevent
loss of housing. This includes families who are doubled up that may lose their housing,
those who are experiencing an immediate health care crisis that jeopardizes their housing,
and those who have received eviction notices.
Strategy 3.6: Develop a plan designed to address the current gap in affordable housing
units available to homeless families and individuals.
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i ~a®~~ ~: ~nce°eose Access ~® Services
Strategy 4.1: Improve the network of homeless service providers to eliminate individuals
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-~f from falling through the cracks.
Strategy 4.2: Homeless people will be engaged and enrolled in the appropriate services.
Strategy 4.3: Develop a system designed to decrease the length of time necessary for
individuals to receive identification.
,' Strategy 4.4: Decrease the wait for Medicaid disability.
Strategy 4.5: Improve Health Care/Dental Care.
Strate 4.6: Im rove the ca aci of current roviders to serve as a oint-of-ent in-
~ gY P p tY P P ry~
cluding sufficient funding to support a facility that is open 24 hours a day, seven days a
week.
~ i Strategy 4.7: Increase access to community resources (jobs, housing, services, and
childcare) in order to develop a maximum 90-day length-of--stay strategy for homeless per-
sons in shelters to facilitate their return to permanent housing.
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'. ~ ~~~i __ -increase Pulbli~ Pwrtcipation in ~ncling ii~melessness
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Strategy 5.1: Identify specific strategies that eliminate NIMBYism (Not In My Back Yard)
in Orange County.
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j ! Strategy 5.2: Increase the number of volunteers directly working with homeless people.
i ~~ Strategy 5.3: Increase positive media support.
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~ Strategy 5.4: Improve the PR presence of current providers within .Orange County.
Strategy 5.5: Develop strategies that demonstrate °proven results" to the taxpayers of
. ~ Orange County. Include specific values for the benefits associated with investing in mental
°E health.
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The Goals and Strategies are provided in the last section of this document and are j
presented with estimates on their timeframe for implementation, costs associated
with the effort, and natural partners. Start Time Frame refers to strategies to be
addressed starting in Year 1, Years 2 through 4, Years 5 through 7, or Years 8
through 10, though a strategy begun in Year 1 may be pursued through all 10 years
of the plan. Estimated costs are less than $10,000 for Low, $10,000 to $50,000 for `~ 1
Medium, and more than $50,000 for High. Natural Partners are those organizations
and agencies seen as having a direct organizational interest in pursuing that par- ~
ticular strategy. The section also contains guidelines for plan implementation, the
structure of an Executive Committee to oversee the process, and staff to manage it.
Housing First Best Practice Example -Denver, Colorado
The following best practice example is one of several offered in Appendix D. ';
The Colorado Coalition for the Homeless (CCH) created 100 units for chronically
homeless individuals through the Denver Housing First Collaborative (DREG) in ~
2003 with funding provided by a collaboration of federal agencies. The DHFC in-
volved CCH as the lead agency, the Denver Department of Human Services
(DDHS), Denver Health (DHHA), Arapahoe House, the Mental Health Center of
Denver (MHCD), and the Denver VA Medical Center. The housing first approach
has been incorporated as a priority strategy into Denver's Road Home -Denver's
Ten Year Plan to End Homelessness. Funding was provided for a second housing
first team at CCH (16th Street Housing First Program) to serve 50 additional chroni-
cally homeless individuals.
A cost-benefit study published by the Denver Housing First Coalition in December,
2006 examined health and emergency service records of a sample of participants
of the DHFC for the 24 month period prior to entering the program and the 24
month period after entering the program. The total sample size for the study was
19 individuals, .based on their enrollment time in the program (24 months of enroll-
meet) and a willingness to release their medical information. For the sample, the
total emergency related costs for the sample group declined by 72.95 percent, or
nearly $600,000, in the 24 months of participation in the DHFC program compared
with the 24 months prior to entry in the program. The total emergency cost savings ~
averaged $31,545 per participant. Specific results included reductions in detox vis- j
its by 82 percent, reduced incarceration days and costs of about 76 percent, and an I
overall reduction of inpatient medical costs of 66 percent. The study found the only !
cost increase was in outpatient care, as "participants were directed to more appro- i'
priate and cost effective services..."
Scope of Services Recommended -The graphic on the following page provides a {
visual representation of the target populations and focus of the outcomes listed
above. While this plan specifically addresses the chronic homeless population, the
graphic shows that other homeless populations are also covered by the strategies
put forward. The color of each goal and strategy indicates the target population.
The abreviation(s) provided to the right of each strategy indicates the focus of the
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Scope of Services recommended
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oai-1: Reduce Chronic Homelessness
Strategy 1'.1 0/CM
Strategy 1:2_ 0/CM
'Strategy 1.3 0/CM, SIT
''Strategy 1.4 SIT
'Strategy 1.5 0/CM
Strategy, 1.6 SIT, H
Strategy, l.7 H, S/T
Strategy! 1.8 EICB
_Strategy 1.9 H
'Strategy 1.10 EICB
Goal 2: Increase Em to ment
Strategy 2.1 J/T
Strategy 2.2 E/GB
Strategy 2.3 S/T
Strategy 2.4 S/T
Strategy 2.5 SIT
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Strategy 2.7 ~
J/T
Strategy; 2.8. S,~T
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Strategy 2.9 _
J/T
Strategy 2.10 JIT
Gaal 4: Increase Access to Services
Strategy 4.1 5/T
Strategy 4.2 SIT
Strategy 4.3 SIT
Strategy 4.4 SIT
Strategy 4.5 SIT
Strategy 4.6 E/GB
Strategy 4.7 O/CM
Gaa15: Increase Public Participation in
Ending Homelessness
Strategy 5.1 P
Strategy 5.2 S/T, P
Strategy 5.3 P
Strategy 5.4 P
Strategy 5.5 P
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Individuals
Families
Youth
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Outreach/Case Management 0/CM
Services/Treatment S/T
Housing H
Evaluation/Capacity Building E/CB
Jobs/TransPortation J/T
Perceptions P
Discharge Planning DP