South Suburban Cook County:
Offender Reentry Housing Collaborative Report
Proposed Ford Heights Project
September 15, 2009
Submitted To:
The Corporation for Supportive Housing
Submitted By:
South Suburban Cook County Planning Group
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Core Principles for Reentry Collaborative
In May of 2008, the governor’s office released a report entitled “Inside Out: A Plan to Reduce
Recidivism and Improve Public Safety.” To support the housing recommendations in the
Governor’s Reentry Report the Corporation for Supportive Housing (CSH) partnered with the
Illinois Department of Corrections (IDOC) and the Illinois Division of Mental Health in
releasing fourteen (14) planning grants within ten (10) target areas to assist communities in
assessing the need for reentry housing and supportive services in their area.
 Planning for services prior to release from an
institution is essential for communities and that
building capacity of the community is
necessary to plan for the safe return of our
former community members.
 Multiple strategies and partnerships need to be
deployed as no one strategy can help all
individuals and families who are homeless.
 As a result of this planning process, all area
agencies from multiple systems will work
together as partners to ensure successful, longterm outcomes for individuals returning from
correctional facilities. This working together
includes planning, identification of current
services and housing, strengths and weakness,
and the development of future goals for growth
and development of housing, services, and
integration. Some of the systems included and
reviewed in our partnership will need to
include: mental health, substance abuse, county
corrections, state corrections, housing,
homeless emergency systems, and health care.
 Services need to be designed and delivered in a
manner that is accessible to people who are
disadvantaged or marginalized.
 We believe that all individuals and families
should have permanent, safe, affordable
housing with necessary supportive service
 Poor integration of systems or lack of resources
often results in people becoming homeless or
returning to Correctional facilities unnecessarily.
 Individuals may become homeless as a result of
their disability and ex-offender status
 Any collaborative planning needs to include the
expertise representation by people who are
homeless or impacted by law enforcement and the
lack of community services to ensure that any new
services or housing meets the needs of the intended
targeted services.
 Active Outreach of people who are labeled
“difficult to reach” needs to be deployed.
 There needs to be a commitment to the creation of
permanent supportive housing with financial
resources allocated with this in mind. Quick fixes
and reactions to crisis have not been sufficient or
effective in solving long term problems.
Collaboration will allow communities to tap into
resources at the federal, state, and local levels to
reinvest money into the prevention of future
expenditures o incarceration and unnecessary
expensive emergency services paid for at the local
level. Our community needs to explore these
options
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South Suburban Cook County:
Offender Reentry Housing Collaborative Report
Table of Contents
I.
Acknowledgements and Partners
II.
Collaboration Efforts
III.
South Suburban Cook County Background Information
a. Data Table
b. SWOT Analysis
IV.
Statement of Needs
V.
Challenges and Problems Identified by Work Group
VI.
Recommendations from Work Group
VII. Program Plans
a. Job Description
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Acknowledgments
We wish to acknowledge the contributions to this project by the following participants in local planning
group.
South Suburban Cook County Planning Group
Tom Driscoll, Deputy Supervisor, Cook County State’s Attorney’s Office
Honorable Judge Brian Flaherty, Sixth Municipal District, Cook County
Patricia Houlihan, Addictions Counselor, Cook County Circuit Court
Kevin Jesse, Adult Probation Supervisor, Cook County
Al Rider, Public Defender’s Office, Cook County
Connie Jordon, Public Defender’s Office, Cook County
Mark Kammerer, Director of Treatment Programs, Cook County State’s Attorney’s Office
Laraine Kross, Adult Probation Officer, Cook County
The Honorable Marjorie Laws, Presiding Judge, Sixth Municipal District, Cook County
April Mohn, Assistant Public Defender, Cook County Public Defender’s Office
The Honorable Doug Simpson, Judge, Sixth Municipal District, Cook County
Sue Stanger, Drug Court Supervisor, Sixth Municipal District, Cook County
Betty Harris, Co-Pastor, Cornerstone House of God
James Harris, Bishop, Cornerstone House of God
Shedrick Hawkins, Elder, Cornerstone House of God
Brenda Tobuch, Casework Manager, Illinois Department of Human Services
Harold Errington, Executive Director, Bethel Human Resources
Lenoris Perkins, Program Director, Bethel Human Resources
Dion Graham, Case Manager, TASC, Inc.
Mack McGhee, Administrator, TASC, Inc.
Ingra Cooper, Community Affairs Director, Family Christian Health Center
Cornell Hudson, Board Member Ford Heights Community Service Organization
Terry Johnson, Vice President, South Suburban Council on Alcoholism and Substance Abuse
Jodyne Scholl, Daytime Coordinator, South Suburban PADS
Karen Vrdolyak, Director of Development, Restoration Ministries
Tim Moore, Associate Clinical Director, Grand Prairie Services
Catherine Watkins, Supervisor of Support Services, Grand Prairie Services
Lisa M. Labiak, VP, Development & Corporate Communication, Grand Prairie Services
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II. South Suburban Cook County Collaboration Efforts
Grand Prairie Services convened a group of community stakeholders including
representation from the justice system, ex-offenders, corrections, homeless prevention
organizations, primary healthcare services, and human service providers including mental
health and substance abuse providers. The group met several times to identify a
permanent supportive housing project within the South Suburban Cook County region.
During our meetings, two projects were identified for support.
Both projects identified are within municipalities of South Suburban Cook County as
identified in the Governor’s report. Ford Heights has been recognized as one of the
poorest communities in the nation. Harvey also represents a lower socio-economic status
than it more affluent neighboring communities such as Olympia Fields and Flossmoor.
III. South Suburban Cook County Background Information
South Suburban Cook County
(Information taken from http://en.wikipedia.org/wiki/Cook_County,_Illinois)
Cook County is the second most populous county in the United States after Los Angeles
County. According to 2008 US Census Bureau estimates, the county has 5,294,664
residents, which is larger than the populations of 29 individual U.S. states, the combined
populations of the six smallest US states, and home to 43.3% of Illinois residents. There
are over 130 incorporated municipalities in Cook County, the largest of which is the
county seat, Chicago, which makes up approximately 54% of the population of the
county. Cook County was created on January 15, 1831 and the current County Board
president is Todd Stroger. The Circuit Court of Cook County, which files more than 1.2
million cases every year, the Cook County Department of Corrections, which is the
largest single-site jail in the nation, and the Cook County Juvenile Detention Center, the
first juvenile center in the nation and one of the largest in the nation, are solely the
responsibility of Cook County government.
The Bureau of Health Services administers the county's public health services and is the
second largest public health system in the nation. Three hospitals are part of this system:
John H. Stroger, Jr. Hospital of Cook County, Provident Hospital, and Oak Forest
Hospital of Cook County, along with over 30 hospitals.
Cook County is divided into thirty different townships. South Suburban Cook County
contains the four townships of Bloom, Bremen, Rich and Thornton. Within these four
townships are 32 municipalities including Harvey, Ford Heights (formerly known as East
Chicago Heights) and Chicago Heights. According to adult parole population data, as of
March 2008, these four townships have seen the release of 1,327 parolees. Of those
parolees, 475 are from Chicago Heights, Ford Heights and Harvey. The remaining 852
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are from the immediate surrounding municipalities. Given the geographic area of each
municipality (Chicago Heights-9.6sqm, Ford Heights-1.8sqm, Harvey-6.2sqm) and their
geographic relationship to one another (Chicago Heights and Ford Heights share a
common border and US postal zip code) for purposes of this report, Chicago Heights and
Ford Heights will be considered as one service area.
IV. Comparison of Chicago/Ford Heights and Harvey
The following table shows some comparison data between Chicago/Ford Heights and
Harvey identified in March 2008. The data that was compared was population,
unemployment rates, number of adult IDOC paroles, and individuals living below the
poverty rate. Following the data table below is a SWOT Analysis that further compares
Chicago/Ford Heights and Harvey.
Chicago/Ford Heights
Population:
Harvey
34,600
30,000
242
233
Individuals living below poverty rate:
7,396
6,418
Unemployment Rate
30.1%
16.3%
Adult IDOC parolees:
SWOT Analysis
This SWOT analysis will compare the Strengths, Weaknesses, Opportunities, and
Threats (SWOT) facing communities in South Suburban Cook County, Illinois. The
main community’s included in this analysis are Chicago Heights, Ford Heights and
Harvey and the SWOT areas apply to both permanent supportive housing projects. Our
recommendations will be included in the final plan submitted to CSH.
STRENGTHS:
Both projects have made significant progress toward completion
Excellent accessibility to public transportation
Access to federally qualified health centers for primary healthcare
Access to several hospital systems
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Broad-based Continuum of Supportive Services
Transitional housing
Nonprofit agencies with housing experience
WEAKNESSES:
Area contains excessive number of foreclosures
Lack of identified housing/transitional housing for offenders
Continuum of Care funding is already maximized
Lack of employment opportunities for ex-offenders
OPPORTUNITIES:
for
48 Transitional beds currently exist as sustainable referral source
project
Ongoing commitment and collaborations of community
stakeholders
These projects create an opportunity to improve community
stability
THREATS:
Increase in limited Correctional Employment Services
Neighborhood resistance
Unstable funding
Housing that prohibits criminal background
Government restrictions for funding or rental subsidy for exoffenders
Possible funding reductions for supportive service
V. Statement of Needs
(Information taken from http://en.wikipedia.org/wiki/Cook_County,_Illinois)
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The national unemployment rate in January of 2009 stood at 8.1% and may go higher in
the coming months. Portions of South Suburban Cook County have traditionally had
significantly higher unemployment numbers than other areas of Cook County. The
decline of the steel industry hurt the economy of the area and other nearby
communities. Wisconsin Steel closed in 1980. U. S. Steel South Works closed in 1992.
Republic Steel closed down several parts of their operation as well. Many people lost
their jobs, and the resident labor force changed.
In Ford Heights, as of the census of 2000, there were 3,456 people, 984 households, and
779 families residing in the village. The population density was 1,954.9 people per square
mile (753.9/km²). There were 1,019 housing units at an average density of 576.4/sq mi
(222.3/km²). The racial makeup of the village was 1.77% White, 95.89% African
American, 0.06% Native American, 0.12% Asian, 1.16% from other races, and 1.01%
from two or more races. Hispanic or Latino of any race were 2.52% of the population.
There were 984 households out of which 48.6% had children under the age of 18 living
with them, 21.5% were married couples living together, 49.3% had a female householder
with no husband present, and 20.8% were non-families. 18.8% of all households were
made up of individuals and 4.7% had someone living alone who was 65 years of age or
older. The average household size was 3.51 and the average family size was 3.98.
In the village the population was spread out with 45.3% under the age of 18, 11.2% from
18 to 24, 22.7% from 25 to 44, 14.0% from 45 to 64, and 6.8% who were 65 years of age
or older. The median age was 21 years. For every 100 females there were 86.7 males. For
every 100 females age 18 and over, there were 70.1 males.
The median income for a household in the village was $17,500, and the median income
for a family was $16,706. Males had a median income of $28,750 versus $20,243 for
females. The per capita income for the village was $8,938. About 45.1% of families and
49.0% of the population were below the poverty line, including 62.0% of those under age
18 and 29.1% of those age 65 or over. This is one of the highest rates in an urban area in
the United States.
In Chicago Heights, as of the census of 2005, there were 31,373 people, 10,703
households, and 7,823 families in the city. The population density was 3,424.4 people per
square mile (1,322.3/km²). There were 11,444 housing units at an average density of
1,195.7/sq mi (461.7/km²). The racial makeup was 45.02% White, 37.90% African
American, 0.45% Native American, 0.44% Asian, 0.04% Pacific Islander, 13.46% from
other races, and 2.70% from two or more races. Hispanic or Latino of any race were
23.77% of the population.
There were 10,703 households out of which 38.1% had children under the age of 18
living with them, 45.0% were married couples living together, 22.3% had a female
householder with no husband present, and 26.9% were non-families. 22.9% of all
households were made up of individuals and 9.7% had someone living alone who was 65
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years of age or older. The average household size was 3.00 and the average family size
was 3.53.
The population was spread out with 31.6% under the age of 18, 10.2% from 18 to 24,
28.0% from 25 to 44, 18.3% from 45 to 64, and 11.8% who were 65 years of age or
older. The median age was 31 years. For every 100 females there were 94.8 males. For
every 100 females age 18 and over, there were 89.7 males.
The median income for a household in the city was $36,958, and the median income for a
family was $42,681. Males had a median income of $34,207 versus $26,276 for females.
The per capita income for the city was $14,963. About 13.7% of families and 17.5% of
the population were below the poverty line, including 24.5% of those under age 18 and
9.9% of those age 65 or over.
In Harvey, as of the census of 2000, there were 30,000 people, 8,990 households, and
6,760 families residing in the city. The population density was 4,842.2 people per square
mile (1,868.2/km²). There were 10,158 housing units at an average density of
1,639.6/sq mi (632.6/km²).
The racial makeup of the city was 79.57% African American, 10.02% White, 0.26%
Native American, 0.38% Asian, 0.05% Pacific Islander, 7.94% from other races, and
1.78% from two or more races. Hispanic or Latino of any race were 12.78% of the
population. There were 8,990 households out of which 39.1% had children under the age
of 18 living with them, 36.4% were married couples living together, 31.8% had a female
householder with no husband present, and 24.8% were non-families. 20.7% of all
households were made up of individuals and 7.1% had someone living alone who was 65
years of age or older. The average household size was 3.30 and the average family size
was 3.80.
In the city the population was spread out with 35.1% under the age of 18, 10.8% from 18
to 24, 26.7% from 25 to 44, 18.8% from 45 to 64, and 8.6% who were 65 years of age or
older. The median age was 28 years. For every 100 females there were 92.2 males. For
every 100 females age 18 and over, there were 86.0 males.
The median income for a household in the city was $31,958, and the median income for a
family was $35,378. Males had a median income of $30,610 versus $25,248 for females.
The per capita income for the city was $12,336. About 20.3% of families and 21.7% of
the population were below the poverty line, including 27.8% of those under age 18 and
17.6% of those age 65 or over.
VI. Challenges/Problems Identified By Work Group
The following points represent the insights of the working committee that has been
meeting over the past several months in South Suburban Cook County. These comments
represent their thoughts on the challenges to homeless offenders and their
recommendations on how to address them.
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1)
There will always be resistance in communities over providing services to
convicted offenders. No one wants them in a group living situation (halfway
house) or living next door to them.
2)
Elected officials often express serious reservations about reentry services as they
do not want to attract this type of person to their communities.
3)
Many ex-offenders cite their recent incarceration as the primary reason for their
homelessness. Many had homes before they went to jail, but did not have a home
when released and lacked the resources to secure a home/apartment.
4)
Lack of financial resources when released into the community on parole.
5)
Lack of employment opportunities.
VIII. Recommendations from Work Group
1)
A full-time case manager should be hired to act as a liaison with community
agencies and he/she would be responsible to report to the new combined CSH
committee representing the Ford Heights and Harvey projects.
2)
Existing housing in the community which is provided by HUD and IDOC needs
to be expanded.
3)
Landlords must own and maintain safe and affordable housing.
4)
IDOC should make a concerted effort to identify inmates who are at risk of
homelessness several months prior to their parole. The offender’s prison
counselor should coordinate pre-release planning with the Community Reentry
Case Manager, the use of the website reentryillinois.net, and with their parole
officer which should help ensure their subsequent success on parole.
5)
Supportive services i.e., mental health counseling, substance abuse treatment,
drug testing, employment counseling, contact with parole/probation officers, are
needed for a successful reintegration into the community. Access to services and
coordination should be a major component of this supportive housing program
and will help ensure the offender’s success.
Primary Action Plan: Should there be investment by the state, county, or city to end
unnecessary recidivism, the South Suburban Cook County workgroup on Re-entry
endorses the following proposed reentry programs. Given the political, geographical and
structural realities inherent within the region, this program is designed to meet the needs
of persons reentering the community. For more details on these projects see Appendix A.
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IX. Conclusion
The empirical studies which have been completed on supportive housing should confirm
that a comprehensive housing program coupled with supportive services, will in fact
make our communities safer. At the same time, our communities will save precious
financial resources through a marked reduction in the use of emergency services, i.e., jail,
detoxification units, and mental health services.
X. Appendices:
A. Program Plan with Job Description and Budget
APPENDIX A:
Re-entry Services for Offenders in South Suburban Cook County
Critical to a successful community reentry for offenders is linkage to supportive services
and employment resources. The level of assistance and support varies widely and
depends on disability status, income, natural support system, and other factors.
HARVEY
Bethel Human Resources (BHR) seeks to construct up to thirty (30) units of permanent
supportive housing for single adult males living in Harvey, Illinois and its surrounding
communities. This development is being undertaken as part of BHR’s Page One Program
that provides transitional housing and a structured drug free residential environment for
clients for a period of 13 months up to 2 years. During this recovery period, a variety of
services are available to residents either through direct services or referrals, to address the
needs of program participants and assist them in moving toward self-sufficiency. Upon
completion of the program the Page One Apartments will offer permanent supportive
housing for individuals who have demonstrated the capacity to live in a more
independently.
The proposed development will consist of the new construction of one bedroom units in a
three story building on a vacant parcel at15133-43 South Page Avenue. Each unit will
average 750 square feet with living room, kitchen, bedroom, full bathroom and closet.
The building will also contain common areas including laundry facilities, meeting rooms,
offices, and storage areas.
PROPOSED OPERATIONS
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BHR will serve as the primary supportive services provider for the development and
assume full responsibility for coordination of all supportive services for residents. In the
proposed development, a case manager will conduct a professional needs assessment,
assist residents in addressing their needs and provide direction and guidance to help
achieve their goals and objectives. BHR will be responsible for tracking residents
progress, making referrals and providing follow up as needed. BHR has an extensive
referral network of agencies ready to deliver services to meeting the needs of each
resident. Current partner agencies include:
South Suburban Council on Alcoholism and Substance Abuse Christian Family Health Services Ingalls Hospital Bethel Gospel Tabernacle Community Economic Development Association (CEDA)
South Suburban PADS –
Thresholds Day Program
Illinois Department of Employment Security
BHR will provide on-site case management. Additional services will be available at
BHR’s offices which are located within one block of the development.
PROFILE OF RESIDENTS
The proposed development will serve single adult males who are homeless and earn less
than 30% of area median income. This includes persons who are who are chronically
homeless by HUD definition: “An unaccompanied homeless individual with a disabling
condition who has either been continuously homeless for a year or more OR has had at
least four (4) episodes of homelessness in the past three (3) years. A disabling condition
is defined as ‘a diagnosable substance use disorder, serious mental illness, developmental
disability, or chronic physical illness or disability, including the co-occurrence of two or
more of these conditions.’ In defining the chronically homeless, the term ‘homeless’
means ‘a person sleeping in a place not meant for human habitation (e.g., living on the
streets) or in an emergency homeless shelter.’” Additionally, the project will also serve
single adult male seniors who earn less than 50% of area median income.
BHR will affirmatively market these units to all who qualify for them. Each potential
applicant will be subject to an intensive screening and selection process to determine
eligibility and likelihood of long term success.
RENTAL SUBSIDY
As permanent supportive housing, all tenants will have leases and there will be no limits
on the length of stay. All units will be leased at fair market rents. FY 2007 final fair
market rent is $706 (inclusive of the utility allowance) for a one bedroom unit in Cook
County. To make units affordable, rental subsidies will be secured by one of more of the
following sources:
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Housing Choice Vouchers through the Housing Authority of Cook County
Shelter Plus Care Vouchers
Illinois Rental Housing Subsidy Program
DEVELOPMENT TEAM
To expand capacity and ensure successful project completion, BHR seeks a joint venture
partner with experience in tax credit financing and supportive housing development. A
limited partnership comprised of BHR and the joint venture partner, as co-general
partners, will be formed to serve as the project owner and developer. BHR will also
retain the services of an experienced professional firm to provide property management
services. BHR has retained Lucas Greene Associates, LLC (LGA) to provide
development consulting services. LGA is a diversified consulting firm specializing in real
estate development, architectural and construction management services whose principals
bring more than 35 years of experience to the development.
FINANCING STRUCTURE
Total costs for the 30 unit development are estimated to be $6,412,150 or $213,738 per
unit. This assumes first mortgage financing of $863,800 from the Illinois Affordable
Housing Trust Fund and/or the Cook County HOME Program at a rate of 0% for 30
years. Other potential financing sources include an energy grant of $81,637 from the
Department of Commerce and Economic Opportunity, and $150,000 grant from the
Federal Home Loan Bank’s Affordable Housing Program. The development is also
expected to generate equity of $5,253,432 from the sale of federal Low Income Housing
Tax Credits and $63,281 from the sale of Illinois Affordable Housing Tax Credits.
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FORD HEIGHTS PROJECT
The Ford Heights Community Service Organization (FHCSO) is 501c3 not for profit
social service agency with the development of affordable housing as a primary purpose.
FHCSO is a Community Housing Development Organization (CHDO) and is currently
developing 30 units of affordable housing to be located in the Village of Ford Heights.
This mixed use housing will provide decent, affordable, and in some cases subsidized
housing to a variety of family structures many of which will require supportive services.
It is in the early stages of development but has funds reserved for development.
Residents in the development which will be comprised of 3 bedroom homes will include
ex-offenders, veterans, single mothers with children, dislocated residents of public
housing (slated to be demolished in Spring 2010) in addition to grandparents who are
parenting their grandchildren due to absent or incarcerated parents.
These homes will help to stabilize and revitalize the Village of Ford Heights, once known
as the poorest community in America. Families within the development will help to
stabilize schools which are in jeopardy of closing due to low enrollment, and with the
upcoming 2010 census, will provide an increase in the number of residents within the
Village, which according to Census 2000 lost more than 700 residents.
See Proposed Project below:
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Job Description
Job Title:
Level of Effort:
Department:
Reports To:
Qualifications:
FLSA Status:
Agency:
Case Manager
1 FTE
Community Reentry
Residential Director
Bachelors in related field
Experience working with correctional clients, mental health, or
substance abuse
Non-Exempt
The Case Manager provides a full array of case management, community support, and
linkage services to individuals who have been released from correctional facilities and
require assistance in dealing with employment, housing, addiction, mental illness or cooccurring disorders. Demonstrates an understanding of community resources, and adopts
a strength-based approach to case management. Assists clients and their families with
their housing, medical, vocational, and treatment needs in order to achieve selfsufficiency and return to healthy and productive lifestyles by performing the following
duties.
Essential Duties and Responsibilities: include the following. Other duties related to the
operation of the Community Reentry program may be assigned.
* Interviews clients and their families to determine access to resources to manage reentry
issues, substance use, mental health, personal and family adjustments, finances,
employment, food, clothing, housing, physical and medical impairments.
* Investigates case situations and presents information to the residential Director and
other members of Community Reentry team on client's vocational needs, housing
situation, access to recovery resources and support system.
* Serves as link between client, team members, and community. Maintains close
communication and coordination with probation/parole or other supervising authority.
* Works with Department of Corrections staff to identify clients most in need of
community case management services and provide linkage to services upon release.
* Identifies and maintains working relationships with providers of transitional housing,
permanent housing, support services, self-help, education, and other community
resources.
* Provides transportation for clients to medical appointments, job interviews, support
services etc. when clinically appropriate. Assists clients in identifying and using mass
transit and other resources for transportation.
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* Conducts home visits for support, assistance with activities of daily living, and
monitoring of client response to treatment and recovery.
* Develops vocational plans for clients including job training, skill development,
assistance with job seeking strategies, and community resources.
* Monitors and records the clients' and families' progress towards becoming selfsufficient. Develops and maintains an accurate clinical record on all assigned clients
through the timely completion of all necessary forms, in accordance with the State's
licensure standards and standard operating procedures.
* Participates in training and clinical supervision necessary to maintain licensure or
certification and clinical skills. This includes attending in-service training and keeping
abreast with current literature.
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