Homelessness in Toledo and Lucas County
A Comprehensive Community Needs Assessment and
Action Plan
June 2004
Toledo Homeless Task Force
This report was prepared by Matt White, principal partner of Matt White Consulting, for
the City of Toledo, Department of Community and Economic Development. Permission
to copy, disseminate or otherwise use information from this report is granted provided
that attribution is given to City of Toledo, Department of Community and Economic
Development 2004.
Matt White
Matt White Consulting
316 West Second Avenue
Columbus, Ohio
(614) 291-0832
mwhite6@columbus.rr.com
i
Acknowledgements
The City of Toledo, Department of Community and Economic Development, gratefully
acknowledges the contributions of the following individuals and organizations to the
Comprehensive Community Needs Assessment and Action Plan:
Toledo Homeless Task Force Members
Louis Escobar, Toledo City Council, Task Force Chairperson
Paula Baldoni, Community Member
Cedric Ball, Owens Corning
Ginger Bass, ADAS Board
Cindy Bland, TMACOG
Vivan Bush, Lucas County Children’s Services
Susan Choe, ABLE
Mike Craun, Neighborhood Health Association
Hugh Daley, Ohio Department of Rehabilitation & Corrections
Beth Frisinger, Downtown Toledo, Inc.
Linda Heinemann, United Way
Ken Leslie, Community Member
Joyce P. Litten, Lourdes College
Jackie Martin, Mental Health Board of Lucas County
Kathy Mehl, TMACOG
John Miga, Owens Community College
Diane Ninke, Owens Community College
Debbie Paul, Toledo Edison
Mary Price, Toledo Area Alliance to End Homelessness
Maja Reed, Toledo Area Alliance to End Homelessness
Carol Rehm, Lucas County Job & Family Services
Jeff Rhodes, Lucas County Metropolitan Housing Authority
Susan Rowe, House of Representatives Marcy Kaptur’s Office
Sharon Rappaport, Central City Ministries of Toledo
Chardell Russell, Office of Lucas County Commissioner Tina Skeldon-Wozniak
Dean Sparks, Lucas County Children’s Services
City of Toledo, Department of Community and Economic Development
Veronica Burkhardt
DeWayne Dade
Steven Seaton
Presenters
Ruth Arden, St. Paul’s Community Center
Maja Reed, FOCUS
Sally Luken, Corporation for Supportive Housing
Dan Rogers, Cherry Street Mission
John Hoover, Neighborhood Properties, Inc.
Consultant
Matt White
ii
Special acknowledgement is given to Louis Escobar, City Council President.
Council President Escobar first envisioned this initiative as a comprehensive
community planning process to develop a solution-oriented response to
homelessness in the Toledo and Lucas County community. In 1999 the City
Council authorized an Ad Hoc Committee on Homelessness to “advise and
recommend the best practice of a comprehensive, coordinated and inclusive
approach for homeless providers and funders of homeless services to maximize
and leverage existing resources so as to strategically address the problems of
homelessness in the City of Toledo.” With Council President Escobar’s
commitment, vision, and strategic leadership, the City Council, the Office of the
Mayor, and the greater Toledo community have realized their initial goals.
Carrying out the vision and mission of Councilman Escobar is the Toledo Area
Alliance to End Homelessness (TAAEH), Toledo’s strongest advocate for the
homeless, a network of social service agencies that represent shelters,
transitional and permanent housing, substance abuse services, healthcare,
outreach, homeless prevention and other supportive services. TAAEH has been
more active in recent years, bringing the Homeless Management Information
System (HMIS) to fruition and hiring an administrator, one of the goals as
described in detail within this Report.
This Report represents the fruition of Louis Escobar’s original vision and
TAAEH’s commitment to address root causes of homelessness through
sustainable systemic change involving coordinated decision making, resource
development and funding.
iii
CONTENTS
1. Executive Summary .................................................................................... 1
2. Introduction and Background..................................................................... 5
3. Community Context .................................................................................... 7
4. Profile of Homelessness in Lucas County............................................... 10
5. Needs of Homeless Sub-Populations ...................................................... 15
6. Assessment of Lucas County Continuum of Care .................................. 19
7. Strategic Action Plan ................................................................................ 29
Appendix 1 – Needs Assessment Survey Tool ............................................ 35
Appendix 2 – Service Provider Bed Data....................................................... 42
Notes ................................................................................................................ 43
Tables
Table 1 – Rental Market Apartment Units and Vacancies, February 2004 .........................8
Table 2 – Rent and Vacancies Analysis – Studio Apartments, February 2004 ..................8
Table 3 – Rent and Vacancies Analysis – 1-Bedroom Apartments, February 2004 ...........9
Table 4 – Rent and Vacancies Analysis – 2-Bedroom Apartments, February 2004. ..........9
Table 5 – Rent and Vacancies Analysis – 3-Bedroom Apartments, February 2004 ...........9
Table 6 – Ranges of Homelessness Estimates for Toledo/Lucas County ........................11
Table 7 – Toledo/Lucas County General Homeless Trends in 2003 (Individuals) ............11
Table 8 – Toledo/Lucas County General Homeless Trends in 2003 (Households) ..........12
Table 9 – General Homeless Demographic Profile ...........................................................14
Table 10 – Rates of Behavioral Health Issues for Toledo Homeless Persons .................18
Table 11 – Inventory of Continuum of Care Beds, 2004 ...................................................20
Table 12 – Annual Emergency Shelter Bed Capacity .......................................................23
Table 13 –Need for Additional Emergency Shelter Beds ..................................................23
Table 14 – Projected Transitional and Permanent Supportive Housing Need ..................25
Table 15 – Annual Transitional Housing Capacity Based on Current Inventory ...............25
Table 16 – Need for Additional Transitional Housing Beds ...............................................26
Table 17 – Annual Permanent Supportive Housing Capacity Based on Inventory ...........27
Table 18 – Need for Additional Permanent Supportive Housing Beds/Units ....................27
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EXECUTIVE SUMMARY
Toledo and Lucas County have made great progress over the years in providing support and
services to individuals and families who find themselves in a housing crisis. Our emergency
shelters, our service organizations, and our residents – all have worked together to help our
homeless community members obtain food and shelter. While results have been positive, we are
at a critical point that requires us to re-evaluate our approach and develop plans to meet our
changing times.
Difficult economic times impact all our citizens, especially the families and individuals
experiencing a housing crisis who might be living doubled up or temporarily sheltered in one of
our community’s homeless programs. As the need for affordable housing and emergency
services continues to grow with limited resources available to fund these programs, it is time to
develop new and more effective models for homeless service provision, coordination, and
funding.
The Need
Officials in the Toledo homeless planning and advocacy community estimate that 2,785 persons
experience homeless in Toledo throughout the course of a year. Although nearly half of all
homeless persons are single adult men, 26% of the homeless population is made up of children.
People become homeless for a variety of reasons and often experience multiple barriers to
resolving their housing crisis. Homeless people who come to shelter report that relationship
problems, loss of a job, and lack of affordable and safe housing are the primary reasons for their
homelessness.
A variety of services and shelter programs are available to provide emergency help to these
Toledo residents experiencing a housing crisis. The Toledo and Lucas County community
receives 4.9 million dollars annually from federal, state, local, and private sources, including the
United Way of Greater Toledo. This funding provides support to nearly 1,400 beds for homeless
people and supportive services that promote self-sufficiency, self-determination, and
employment. Unfortunately, a lack of coordination and collaboration among government funders
and homeless providers has created inefficiencies, overlaps in services, and gaps in critical need
areas. The available resources are not enough to help all people resolve their housing crisis, and
resources are not coordinated in the most efficient manner possible. Every night in Toledo
homeless people sleep on the streets and homeless children go without food.
Toledo Homeless Task Force
In response to this critical need, the City of Toledo constituted a Toledo Homeless Task Force of
community leaders to assess the current service system and make recommendations for
improvements that will promote cost efficiency and service effectiveness throughout the
continuum of care system. The Task Force prepared this report, A Comprehensive Community
Needs Assessment and Action Plan. The Needs Assessment component describes the current
service system and client needs. The Action Plan component outlines the development of a
homeless services management authority, a new organization that will assume responsibility for
implementation of Toledo Homeless Task Force recommendations.
Homeless Services Board
The Action Plan creates a new organization charged with implementation of Action Plan
recommendations. The Homeless Services Board is a unique and independent partnership
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between local government, businesses, the faith community, and private sector funders with
oversight representation from each partner. The Homeless Services Board will address the
problems of homelessness on a regional basis and promote solution-oriented planning and
coordination of services. As an administrative entity with 501©3 status, the Homeless Services
Board will channel public and private sector funding to focus on the problem of homelessness.
The Homeless Services Board will contract with community-based nonprofit agencies to provide
homeless services throughout Toledo and Lucas County, advocate for the needs of homeless
people, plan for and fund homeless services, and ensure effective use of public resources through
program and fiscal monitoring of funded programs. Goals of the Homeless Services Board
include:
 Build a collaborative community-wide partnership to encourage effective and efficient
use of resources, and promote implementation of best practice models of service delivery
and housing development.
 Increase the awareness and understanding of policy makers, funders, and the community
at large about homelessness.
 Promote an effective and sustainable advocacy organization in the form of a Homeless
Services Authority to support the work of community-wide planning, prioritizing, and
funding of homeless services and housing.
Although a Homeless Services Board will immediately bring cost savings to the community by
coordinating homeless services and prioritizing the allocation of limited resources, an initial
community investment is required to establish the Authority. Planners estimate that a single staff
person with leveraged staffing and space resources from the City of Toledo and the United Way
is enough to launch the Homeless Services Board. Start up costs for the first 18 months of
operation are estimated at $150,000. This investment will fund one full time equivalent staff
position to manage Action Plan implementation and secure ongoing financial support for the
Homeless Services Board.
The Investment
Toledo must mount a sustained campaign to remedy its severe shortage of housing affordable to
people with extremely low incomes. To begin to address the shortage, the Action Plan calls for
making 450 additional rental units affordable over the next five years to people experiencing
homelessness and living with disabilities. The Plan calls for linking these 450 units with support
services.
While new resources will be needed to meet these goals, much of the cost can be funded by
maximizing use of current public and private resources, using existing resources to leverage new
sources of funds, and strategically redirecting existing funds. And because Toledo and Lucas
County have a surplus of rental housing affordable to people with incomes somewhat higher than
those of the poorest of the poor (See Section 2: Community Context on Housing), creating these
supportive housing units will not require a significant amount of new construction.
The centerpiece of this Action Plan is a call for a sustained campaign to address the severe
shortfall in affordable housing with supports for persons experiencing homelessness. But the
recommendations of the Plan also focus on other strategies aimed at preventing homelessness,
enhancing certain services to people in need, better coordinating the system of delivering
services, and ensuring that the system is effective in ending homelessness.
City Council President Louis Escobar and Mayor Jack Ford have mounted a significant effort to
improve the homeless delivery system for homeless people and establish better oversight for
2
community resources dedicated to homeless services. Community support from public resources,
private sector funds, business community investment, and homeless provider coordination are all
needed for Toledo and Lucas County to be successful.
Action Plan
The comprehensive Action Plan serves as a guide for the implementation of business process
improvements in the homeless service sector. The Action Plan identifies practical solutions based
on Needs Assessment information, research on national best practices, and local expertise.
Beyond the recommendations for 450 additional units of permanent supportive housing, this Plan
calls for implementing the strategies listed below. They are explained in more detail in the full
report that follows.
Recommendations include:
Prevention
Create a neighborhood-based prevention system to identify and assist people who are at-risk of
becoming homeless.
Outreach
Develop coordinated street outreach services to engage people living on the streets of Toledo; and
engage those clients in shelter, housing, and other services, as needed.
Emergency Shelter and Transitional Housing
Although additional emergency shelter and transitional shelter capacity may not be warranted,
clients with specific barriers such as mental illness, large family size, and substance abuse
encounter significant challenges accessing emergency and temporary housing resources. The
following recommendations are made to strengthen the emergency shelter and transitional
housing systems in Toledo:
 Develop a system-wide strategy or vision to address homelessness in Toledo. In
 addition to system-wide approaches, this strategy must include service delivery
approaches at the program level that emphasize housing and seek to end an individual
or families’ homelessness.
 Require participation in the local Homelessness Management Information System.
Collect demographic, service utilization, and outcomes data on clients of all
homelessness prevention programs. Enhance existing programs and develop any new
programs based on the self-identified needs and service utilization patterns of clients.
 Establish inclusive admission policies/practices and relapse-tolerant program
requirements to improve the system’s ability to engage all clients, at all levels of crisis,
addiction, and recovery.
 Develop minimum standards for all emergency shelters and transitional housing
programs. These standards should address facility, operations and staffing issues.
 Maximize existing, mainstream community resources. Instead of re-creating a new
system for homeless people, the system should develop partnerships with mainstream
service providers to improve linkages to mental health and substance abuse treatment
services, and other needed services. Consider partnering to offer on-site satellite
offices at shelter and housing programs. These on-site offices can offer clients quick
and easy access to mental health and substance abuse assessments, entitlement
assistance, and employment resources. Plus, it offers a low-cost strategy to meet the
varied needs of homeless people.
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Permanent Supportive Housing
Develop a permanent supportive housing initiative to include at least 305, and more likely 450,
units for homeless persons with severe, chronic disabilities.
Centralized Planning & Funding
Create an impartial and independent centralized planning body that provides multi-year, strategic
planning, research and funding for homeless programs and services, to achieve the goal of
reducing homelessness in Toledo.
Performance-Based Funding, Planning, and Evaluation
Develop performance-based strategic planning to identify missions, long-term goals, strategies
for achieving the goals, and key external factors. Institute an annual evaluation process at the
program level to identify performance goals, strategies, and data verification and validation
procedures. Report out on an annual basis, comparing actual performance with performance
goals, and summarizing evaluation findings.
Increased and Diversified Funding
Diversify the funding structure of all significant homeless programs and services.
Develop a plan to increase agency operating funds and direct service dollars by leveraging
multiple funding sources and promoting creative and solution-oriented partnerships.
Coordinated Service Provision
Develop service partnerships with community-based service providers to increase linkages to
mental health and substance abuse treatment services, and other need services.
Continue to improve access to Social Security benefits among homeless in shelters and
transitional facilities.
Staff Training
Establish on-going education and training opportunities for staff of homeless assistance programs.
Homeless Management Information Systems (HMIS)
Continue to develop and define local standards for HMIS, including further identification of
required data elements and analysis of aggregate HMIS data; expand participation by all
Continuum of Care providers; and develop further plans to pursue the use of HMIS data for
strategic planning ad community public awareness campaigns.
4
Part 1
INTRODUCTION AND BACKGROUND
Needs Assessment Background and Goals
Toledo and Lucas County have made great progress over the years in providing support and
services to individuals and families who find themselves in a housing crisis. Our emergency
shelters, our service organizations, and our residents – all have worked together to help our
homeless community members obtain food and shelter. While results have been positive, we are
at a critical point that requires us to re-evaluate our approach and develop plans to meet our
changing times.
Difficult economic times impact all our citizens, especially the families and individuals
experiencing a housing crisis who might be living doubled up or temporarily sheltered in one of
our community’s homeless programs. As the need for affordable housing and emergency
services continues to grow with limited resources available to fund these programs, it is time to
develop new and more effective models for homeless service provision, coordination, and
funding.
In response to this critical need, the City of Toledo has constituted the Toledo Homeless Task
Force (Task Force), a group of community leaders, to assess the current service system and make
recommendations for improvements that will promote cost efficiency and service effectiveness
throughout the continuum of care system. In an effort to make recommendations for system
changes in the context of the most accurate and timely information about the extent and scope of
homelessness, Task Force members enlisted the aid of human services consultant, Matt White, to
conduct a comprehensive needs assessment.
This report, Homelessness in Toledo and Lucas County: A Comprehensive Community Needs
Assessment, represents the collective research and analysis on the needs of persons experiencing
homelessness and the scope and effectiveness of services and housing designed to serve persons
experiencing a housing crisis. Specifically, the Task Force outlined the following goals for the
Needs Assessment:
1. Gather quantitative and qualitative data on the needs of persons experiencing a housing
crisis in Toledo and Lucas County.
2. Assess the effectiveness of services and housing designed to serve persons experiencing a
housing crisis.
3. Target research and analysis activities on chronically homeless persons as a special
subpopulation in need of prioritization.
4. Identify recommendations for improving service coordination and significantly reducing
homelessness in Toledo and Lucas County.
Research for the Needs Assessment included a review of current literature on homelessness, an
analysis of Toledo’s existing database of local shelter users, and original data collection. Matt
White administered a 5-page survey to 117 individuals who were homeless and residing in
shelters, transitional housing, or on the streets. A total of 55 single men, 24 women, and 38
members of families completed the client survey. A copy of the client survey is available in
Appendix 1 of this report. All figures in this report is based on Needs Assessment data analysis
unless otherwise noted.
5
The mix of persons surveyed was intended to reflect the make-up of the homeless subpopulations residing throughout Lucas County. The individuals who completed the 10-minute
survey were all volunteers. Individual client information was collected and reported in aggregate
form. No personal identifying information has been presented in this report.
Contents of this Report
1. Introduction and Background – goals and methodology
2. Community Context – demographic and economic data and trends for Lucas County
3. Profile of Homelessness in Lucas County – general characteristics of the homeless
population
4. Needs of Homeless Sub-Populations – analysis of needs based on customer research and
interviews
5. Assessment of the Lucas County Continuum of Care – description and evaluation of the
homeless service system
6. Strategic Action Plan – recommendations for system-wide enhancements and specific
programmatic improvements.
6
Part 2
COMMUNITY CONTEXT
Toledo, located on Lake Erie in the Northwest section of Ohio, is the 4th largest city in Ohio
(after Columbus, Cleveland, and Cinncinati), in terms of population. The metropolitan area of
Toledo reaches into three separate counties in Northwestern Ohio; Fulton, Lucas, and Wood.
This “rust belt” community traditionally has been characterized by a strong connection to
organized labor unions and in-migration of immigrant groups seeking blue-collar, manufacturing
sector employment. Lucas County has a prominent manufacturing base that includes Daimler
Chrysler Jeep plant, Owens Corning, Dana Corporation and Owens-Illinois. The County is also
one of the largest oil refining centers between Chicago and the eastern seaboard with BP Amoco
Toledo Refinery and Sunoco Mid-America Marketing and Refining.
The Toledo/Lucas County metropolitan area is the backdrop for this Report. The profile of
homelessness, programs that serve homeless persons, and mainstream resources available to
persons experiencing a housing crisis are all assessed and analyzed in the context of the greater
Toledo community. The following section provides background information about Toledo and
Lucas County to assist the reader in understanding the context for the assessment and analysis
throughout the report and informs the recommendations in the concluding sections of the report.
Population
The Census Bureau estimates the Lucas County population for 2002 to be 453,506. This
represents a slight (0.4%) decrease in the population recorded during the 2000 Census. From
1980 to 2000 the population of Lucas County decreased by 3.6%. Census officials predict that
the population will continue to decline at current rates due in part to a lack of significant inmigration and continued out-migration patterns.
There are 128,925 households out of which 29.8% have children under the age of 18 living with
them, 38.2% are married couples living together, 17.2% have a female householder with no
husband present, and 40.0% are non-families. Thirty-two point eight percent (32.8%) of all
households are made up of individuals and 11.0% have someone living alone who is 65 years of
age or older. The average household size is 2.4 persons and the average family size is 3.0 persons.
Throughout Toledo the population is distributed acorss age cateories with 26.2% under the age of
18, 11.0% from 18 to 24, 29.8% from 25 to 44, 19.8% from 45 to 64, and 13.1% who are 65 years
of age or older. The median age is 33 years. For every 100 females there are 91.9 males. For
every 100 females age 18 and over, there are 87.7 males.
Income and Poverty
Census data shows that the median income for a household in the city is $32,546, and the median
income for a family is $41,175. Males have a median income of $35,407 versus $25,023 for
females. The per capita income for the city is $17,388. 17.9% of the population and 14.2% of
families are below the poverty line. Out of the total people living in poverty, 25.9% are under the
age of 18 and 10.4% are 65 or older.
Housing
A housing rental market study of the central Toledo area was conducted in February of 2004 by
an independent research group investigating options for low-income housing development with
tax credit financing. The study included an analysis of market rate and subsidized apartment
7
units, by size, vacancy rates, and median rents. The study revealed that the average two-bedroom
apartment, which makes up 44% of the total rental market, rents for $515 per month. Given the
US Department of Housing and Urban Development’s (HUD) housing affordability index, a
household’s total housing costs (rent or mortgage and utilities) should not exceed 30% of the total
household income. In order for the average two-bedroom apartment to meet the housing
affordability index the household renting the unit must bring in $1,717 in income monthly, or
$20,604 annual. Any household living in a two-bedroom apartment that does not at least meet the
monthly income threshold of $1,717 would experience a housing cost burden in the average
Toledo apartment.
Another way to analyze housing affordability for Toledo residents is to translate average annual
rents into an hourly wage threshold necessary for the housing to be affordable. A monthly rent of
$515 requires an hourly wage of $9.98. The minimum wage for the State of Ohio is $4.25 per
hour.
The following tables highlight the median rental rates and occupancy rates for various sized
apartments in the Toledo central city area.
Table 1 – Rental Market Apartment Units and Vacancies, February 2004
UNITS
VACANCIES
Studio
One-Bedroom
Two-Bedroom
Three-Bedroom
Four-Bedroom
Number
159
470
623
143
12
Percent
11.3%
33.4%
44.2%
10.2%
0.9%
Number
22
41
52
5
0
Percent
13.8%
8.7%
8.3%
3.5%
0.0%
TOTAL
1,407
100.0%
120
8.5%
Table 2 – Rent and Vacancies Analysis – Studio Apartments, February 2004
TOTAL UNITS
VACANCIES
Net Rent
$400.-$450.
$305.-$350.
$265.
Number
Percent
Number
Percent
69
74
16
43.4%
46.6%
10.0%
4
17
1
5.8%
23.0%
6.3%
TOTAL
159
100.0%
22
13.8%
Median Rent: $343
8
Table 3 – Rent and Vacancies Analysis – 1-Bedroom Apartments, February 2004
Net Rent
$750.-$775.
$470.-$700.
$385.-$435.
$300.-$380.
$250.-$280.
TOTAL UNITS
Number
46
120
186
56
62
TOTAL
470
Percent
9.8%
25.5%
39.6%
11.9%
13.2%
VACANCIES
Number
7
14
13
4
3
Percent
15.2%
11.7%
7.0%
7.1%
4.8%
100.0%
41
8.7%
Median Rent: $416
Table 4 – Rent and Vacancies Analysis – 2-Bedroom Apartments, February 2004
Net Rent
$575.-$1,500.
$455.-$570.
$375.-$450.
$365.
TOTAL UNITS
Number
168
298
139
18
TOTAL
623
Percent
27.0%
47.8%
22.3%
2.9%
VACANCIES
Number
30
15
7
0
Percent
17.9%
5.0%
5.0%
0.0%
100.0%
52
8.3%
Median Rent: $515
Table 5 – Rent and Vacancies Analysis – 3-Bedroom Apartments, February 2004
Net Rent
$850.-$1,500.
$525.-$640.
$435.-$510.
TOTAL UNITS
Number
14
100
29
Percent
9.8%
69.9%
20.3%
VACANCIES
Number
0
4
1
Percent
0.0%
4.0%
3.4%
TOTAL
143
100.0%
5
3.5%
Median Rent: $573
9
Part 3
PROFILE OF HOMELESSNESS IN LUCAS COUNTY
The Question of “How Many?”
A primary research focus of any comprehensive study of homelessness will ask the question,
“How many people are homeless?” This seemingly simple question has caused great controversy
among researchers and advocates since homelessness was first examined as a significant urban
issue in the early 1980s. Although researchers have developed more advanced and
comprehensive techniques to estimate the number of people experiencing homelessness,
determining an exact count continues to be elusive. The first challenge in enumerating homeless
individuals is defining who should be defined as “homeless”. While some studies examine only
individuals who are enrolled in services designed for homeless people, other researchers might
include individuals who are precariously housed with friends or relatives but not yet engaged in
services. This latter group is often described as “doubled up” or “couch homeless”. Yet another
problem in counting homeless people is determining the enumeration method. Numbers from a
point-in-time count will drastically under-represent the extent of people experiencing
homelessness over the course of a year. All of these issues need to be considered when
determining homeless count estimates and using those estimates for program planning and system
analysis.
This report analyzes the extent and profile of people experiencing homelessness based on
multiple data sources. While an attempt to calculate a precise count of homeless individuals in the
Toledo metro area is beyond the scope of this project, general estimates are available, reliable,
and extremely useful in developing recommendations to overcome homelessness.
General Trends
The United States as a whole has experienced an unrelenting increase in the number of homeless
people in the past twenty years.1 Toledo and Lucas County, Ohio (T/LC) have not been spared
from this disturbing trend. Planners associated with the Toledo Continuum of Care, a local
planning process for federal resources associated with homelessness assistance, estimate the
annual extent of homelessness for the greater T/LC metro area to be in the range of 1,029 to 2,058
individuals.2 For the purposes of general system planning and accounting to HUD, the total extent
of sheltered homeless throughout the course of a year is estimated to be 1,029 people. This
estimate is based on Continuum of Care planning numbers. Several provider sources suggest that
the actual number of homeless people may be much higher. The figure 2,058 represents a
doubling of the service-based enumeration, accounting for homeless individuals and families not
engaged in services or overlooked in the point-in-time count. In order to engage in system-wide
analysis and planning other methods for homeless enumeration also need to be considered.
The 2002 and 2003 T/LC applications to the U.S. Department of Housing and Urban
Development for Continuum of Care funding use these numbers. The Continuum of Care
numbers are based on the combination of a 2002 and 2003 community count of sheltered and
unsheltered homeless in Toledo.
Estimates from other similarly sized metropolitan areas throughout the United States suggest that
an appropriate general estimate that is sufficient for the purposes of planning and analysis would
be in the range of 2,000 to 4,250. Given that the population of Toledo/Lucas County was
455,054 in 2000 according to the Census, this estimate suggests that nearly one in every 220
individuals in the T/LC community will experience homelessness in the course of a year. A
homeless prevalence study conducted by Dennis Culhane at the University of Pennsylvania
suggests that a metropolitan area of the size of Toledo/Lucas County in the northeastern quadrant
10
of the USA is likely to have a rate of homelessness equal to 1% of the total population. Thus,
using this methodology, the number of people experiencing homeless on an annual basis is a
derivative of the total MSA population of 455,054 or 4,550.
Both data sources (Continuum of Care applications and Culhane methodology) are presented
together, in Table 6 – Ranges of Homeless Estimates for T/LC, to offer multiple interpretations
and provide the policy maker with a reliable range of data sources. Determining a more reliable
count should be a critical component of any further research.
Table 6 – Ranges of Homelessness Estimates for T/LC
Source
Annual Prevalence of Total Homeless
Population
2002, 2003 T/LC Continuum of Care Applications 3
National Prevalence Study4
Estimate used for analysis in this Needs Assessment
1,029 – 2,058
3,000 – 4,550
2,275 – 3,300
A universal or absolute description of the “typical” homeless person is not possible. The current
homeless population in T/LC is heterogeneous, consisting of single men, single women, families,
and unaccompanied youth. Each of these groups has different needs according to a variety of
individual strengths and challenges. Although each person experiencing a housing crisis presents
with individual experiences that lead them to their current situation, categorizing these
experiences by sub groups within the general homeless population can be useful. By identifying
specific circumstances that are common to each sub group of homeless individuals, one is able to
create generalized profiles that are very useful for homeless providers as the providers develop
services intended to resolve an individual’s housing crisis.
The Continuum of Care 2002 and 2003 applications estimate that 59% of all homeless individuals
represent single people not attached to families or dependents at the time of homelessness.
National research consistently suggests that the breakdown among single individuals between
female and male is roughly 1:45. Extrapolated from this data Table 7, T/LC General Homeless
Trends in 2003 (Individuals), highlights current trends in homelessness for individuals. Table 8,
T/LC General Homeless Trends in 2003 (Households), highlights the same data from the
perspective of household units rather than individuals.
Table 7 – T/LC General Homeless Trends in 2003 (Individuals)
Sub-Population
Single Adult Men
Single Adult Women
Total Individuals in Families*
Children in Families
Unaccompanied Youth
TOTAL
Estimated Prevalence
Range
1,310 – 1,550
335 – 400
1,000 – 1,190
725 – 860
140 – 165
2,785 – 3,300
Percentage of total
homeless population
47%
12%
36%
26%
5%
100%
Source: 2003 Continuum of Care Consolidated Application for T/LC and 1997 NSHAPC.
*Family Household Units are defined as households with at least one adult and one child under the age of 18. The average family size
is 2.3 individuals.
11
Table 8 – T/LC General Homeless Trends in 2003 (Households)
Sub-Population
Single Adult Men
Single Adult Women
Family Household Units*
Unaccompanied Youth
TOTAL
Estimated Prevalence
1,310 – 1,550
335 – 400
435 – 520
140 – 165
2,280 – 3,300
Percentage of total
homeless household
population
57%
15%
19%
9%
100%
Source: 2003 Continuum of Care Consolidated Application for T/LC and 1997 NSHAPC.
*Family Household Units are defined as households with at least one adult and one child under the age of 18. The average family size
is 2.3 individuals.
Homeless Single Men
For the purposes of this study, single men include unaccompanied males between the ages of 18
and 65 who report to shelter or other emergency services without an adult partner or children.
Many of the men included as Single Men in this study may, in fact, have adult partners, either
legally married or not, or be the non custodial parent of children. Because the men report to
shelter as singles, they are categorized as such for the purposes of this study.
Adult single men make up the largest subpopulation of people experiencing a housing crisis in
Toledo. It is estimated that 1,310 men experience homelessness in the course of a 12-month
period. This represents nearly half (47%) of all people experiencing a housing crisis.
Single men tend to be the most transient of all homeless individuals, traveling from city to city.
Adult men also demonstrate the greatest degree of variation of cumulative length of time spent
homeless among all homeless persons. Individuals interviewed for this study report total lengths
of stay from three weeks to up to 16 years. Single men were also the most likely of all the
populations to have experienced multiple episodes of homelessness. The following
characteristics highlight the profile of men experiencing homelessness.
The median age of the Needs Assessment survey respondents was 38 years. The proportion of
men identifying as African-American was 44%. The Lucas County proportion of men identifying
as African-American in the 2000 Census was 17%. Homeless men in Toledo are 2.5 times more
likely to be African-American than the general population Toledo area residents.
Countywide the proportion of men achieving the educational attainment of a high school diploma
(or equivalent) or greater was 83%, while the rate of high school education among homeless men
was 66%. Veteran status is also comparatively different between homeless men and general
population men. 67% of homeless men indicated that they had served or are currently serving on
active-duty military services in the Armed Forces or in the military Reserves or National Guard.
Only 11% of Lucas County men are designated as Veterans or currently serving military duty.
The average monthly income of Lucas County men in 2000 was $2,360, which represents nearly
seven times the average monthly income for homeless men of $358.
Homeless Single Women
For the purposes of this study, single adult woman include unaccompanied females between the
ages of 18 and 65 who report to shelter or other emergency assistance programs.
12
Although single women are not as transient as men, women interviewed report traveling from city
to city within Ohio and within the mid-western United States in search of employment, housing
and stability. About one third of women (32%) report their current stay in emergency shelter as
their first episode of homelessness. The average length of time women reported being homeless
ranged from just a few days to nearly a year with the average being about 60 days.
With a median age of 35, single adult women tend to be a bit younger than single men. Women
are more likely to suffer from physical health problems and report difficulty accessing
appropriate health care services. Women reported “fleeing abuse,” “relationship problems,” and
“not enough income” as significant reasons for their current shelter stay. Mental illness tends to
be more prevalent among homeless women with nearly half (46%) reporting mental health
concerns. Fewer women than men report alcohol problems or problems associated with
combined presence of alcohol abuse and mental illness.
Homeless Families
For the purposes of this study, a family is defined as a household that consists of at least one adult
and one child under the age of 18. Although family households report to shelter in many
configurations of multiple adults and multiple children either legally related or not, the most
likely family configuration is a female single parent with one or two children under the age of 7.
In contrast to the predominantly male single adult population, the majority of adults in homeless
families surveyed were female (90%). Individuals in families make up 36% of all homeless
people and children in families represent 26% of the total number of people experiencing
homelessness.
The median age for the head of the household in homeless families is 25, representing a much
younger population than homeless single men or women. Families have, on average, 2.3 children
accompanying them when they report to shelter. Although families have the highest average
monthly income of any of the homeless subpopulations, family income is likely to be minimally
more than men or women and is derived most commonly from public assistance benefits.
Families are the most likely subpopulation to have no previous experience with homelessness.
Sixty-three percent of families surveyed were homeless for the first time.
Most families in the survey were living in Toledo when they became homeless. Families report
loss of job or income and relationship problems as the primary reasons for homelessness.
Homeless families tend to have a lower incidence of alcohol addiction and mental illness, and, as
a result, appear higher functioning than single men and women.
13
Table 9 – General Homeless Demographic Profile
Men
Women
Families
38
35
25
High graduate or more
66%
32%
58%
African-American
44%
49%
55%
Veteran
67%
0%
8%
Ave. monthly income
$358
$450
$528
-
-
2.3
Currently working
60%
12%
37%
State or federal prison time
56%
2%
11%
Ever slept on streets
69%
44%
5%
First time homeless
44%
32%
63%
More than 2 episodes of
homelessness
Reasons for coming to shelter
33%
61%
11%
Median age
Ave. number of children
 pushed
out/kicked out
 poor living
situation
 not enough
income
 not enough
income
 domestic
violence
 Not enough
income
 Pushed
out/kicked out
 No job
14
Part 4
NEEDS OF HOMELESS SUB-POPULATIONS
Homeless individuals and families often experience many barriers that must be overcome to
achieve self-sufficiency and residential stability. Issues faced by homeless persons include
income and employment, housing, physical and mental health, substance abuse, domestic
violence, and criminal history. This Needs Assessment provides information on the needs of the
three primary homeless sub-populations (single men, single women, and families). These needs
are summarized in this section of the report.
Figures in Table 10 represent general rates of mental illness, addiction to alcohol or drugs, and
domestic violence based on the estimate of the T/LC homeless population. A comparison is
provided for rates of behavioral health issues for general homeless populations nationally. The
national statistics are taken from a 1996 national survey of homeless service providers and
homeless persons by the Urban Institute.
Needs of Homeless Single Men
Income & Employment
Employed full time .............................................................................. 33%
Ave weekly hours worked .......................................................................28
Why not working ...................................... laid off or seasonal work ended
Currently looking for work.................................................................. 73%
Housing
Currently living in Emergency Shelter ................................................ 63%
Ever stayed outside .............................................................................. 69%
First time homeless .............................................................................. 44%
Homeless for 30 days or more ............................................................. 55%
Ave. number of times homeless for greater than 30 days ......................4.5
Main reasons for leaving last “regular housing” .... pushed out, kicked out
Poor living conditions
Not enough income
Physical Health
Receive medical care from a hospital emergency room ...................... 43%
Receive medical care from private physician or clinic........................ 18%
Rate overall health as poor or fair ....................................................... 27%
Experience the following medical conditions ............. high blood pressure
Arthritis, rheumatism
Chest infection, bronchitis
Skin infections, ulcers
Mental Health
Need treatment for a mental illness or behavioral problem ................. 28%
Currently taking medication for a mental illness................................. 22%
Substance Abuse
Currently use drugs or alcohol on a regular basis ............................... 56%
Most frequently used drug ............................................................... alcohol
Need treatment for substance abuse addiction .................................... 36%
15
Criminal History
Spent more than 5 days in City/County jail......................................... 78%
Spent time at a state or federal prison ................................................. 56%
Top three needs right now:
1. assistance finding affordable housing
2. financial help to secure permanent housing
3. transportation assistance
Needs of Homeless Single Women
Income & Employment
Employed full time ................................................................................ 6%
Ave weekly hours worked .......................................................................10
Why not working .................................... health problems, can’t find work
Currently looking for work.................................................................. 75%
Housing
Currently living in Emergency Shelter ................................................ 77%
Ever stayed outside .............................................................................. 44%
First time homeless .............................................................................. 32%
Homeless for 30 days or more ............................................................. 77%
Ave. number of times homeless for greater than 30 days ......................2.8
Main reasons for leaving last “regular housing” ............ domestic violence
poor living conditions
not enough income
Physical Health
Receive medical care from a hospital emergency room ...................... 48%
Receive medical care from private physician or clinic........................ 12%
Rate overall health as poor or fair ....................................................... 52%
Experience the following medical conditions ............................... diabetes
Arthritis, rheumatism
Chest infection, bronchitis
Mental Health
Need treatment for a mental illness or behavioral problem ................. 46%
Currently taking medication for a mental illness................................. 42%
Substance Abuse
Currently use drugs or alcohol on a regular basis ............................... 24%
Most frequently used drug ............................................................... alcohol
Need treatment for substance abuse addiction .................................... 22%
Criminal History
Spent more than 5 days in City/County jail......................................... 24%
Spent time at a state or federal prison ................................................... 0%
Top three needs right now:
1. help finding a job
2. financial help to secure permanent housing
3. job training
16
Needs of Homeless Families
Income & Employment
Employed full time .............................................................................. 32%
Ave weekly hours worked .......................................................................21
Why not working ............................. personal, family reasons (pregnancy)
Currently looking for work.................................................................. 74%
Housing
Currently living in Emergency Shelter ................................................ 94%
Ever stayed outside ................................................................................ 5%
First time homeless .............................................................................. 63%
Homeless for 30 days or more ............................................................. 65%
Ave. number of times homeless for greater than 30 days .........................1
Main reasons for leaving last “regular housing” ............. couldn’t pay rent
pushed out, kicked out
lost job
Physical Health
Receive medical care from a hospital emergency room ...................... 74%
Receive medical care from private physician or clinic........................ 68%
Rate overall health as poor or fair ....................................................... 13%
Experience the following medical conditions .. Chest infection, bronchitis
Arthritis, rheumatism
Mental Health
Need treatment for a mental illness or behavioral problem ................. 54%
Currently taking medication for a mental illness................................. 23%
Substance Abuse
Currently use drugs or alcohol on a regular basis ................................. 5%
Most frequently used drug ............................................................... alcohol
Need treatment for substance abuse addiction .................................... 11%
Criminal History
Spent more than 5 days in City/County jail......................................... 21%
Spent time at a state or federal prison ................................................. 11%
Top three needs right now:
1. assistance finding affordable housing
2. transportation assistance
3. financial assistance to help secure permanent housing
17
Table 10 – Rates of Behavioral Health Issues for T/LC Homeless Persons
Homeless Sub-Populations
Annual Prevalence
Rate for T/LC
Annual Prevalence
Rate Nationally*
Men
Mental Illness
Substance Abuse
28%
56%
39%
48%
Women
Mental Illness
Substance Abuse
Domestic Violence
46%
24%
16%
51%
26%
10%
Family Household Units
Mental Illness
Substance Abuse
Domestic Violence
54%
11%
11%
21%
19%
10%
*Source: Helping America’s Homeless, NSHAPC 1996.
18
Part 5
Assessment of Lucas County Continuum of Care
Homelessness is one of the most complex and compelling issues facing Toledo, Lucas County
and the United States. The homeless population crosses all social boundaries, including the 16
year-old runaway, the single woman with two children fleeing abuse, and the single male veteran
living on the streets. With each homeless person having such distinct and varied needs for
housing and supportive services, the challenge of helping people end their homelessness may
seem insurmountable. By no means, however, is this the case.
Building on the experiences of communities across the country, community leaders, homeless
advocates and the U.S. Department of Housing and Urban Development (HUD) have developed a
strategy to effectively address the many dimensions of homelessness. This strategy is referred to
as the Continuum of Care. In essence, the goal is to create and sustain sufficient capacity
throughout the Continuum of Care system to facilitate the movement of individuals toward
permanent housing and independent living. However, not all people will need to access each
component of a Continuum of Care or move through the Continuum of Care in a linear fashion.
The Continuum operates with multiple entry points, as each of its components is designed to
engage and link people with the housing and services they need.
The fundamental components of the Continuum of Care are:






Homelessness prevention/shelter diversion to prevent people from losing their housing
and subsequently needing to access homeless services.
Outreach and assessment to identify an individual’s or family’s service and housing
needs, to engage them in those services, and to link them to additional housing and/or
service resources, as appropriate.
Emergency shelter as a safe, decent alternatives to living on the streets.
Transitional housing with supportive services to help people develop the skills necessary
to get and keep permanent housing.
Permanent supportive housing – service-enriched housing designed to address the longterm housing and service needs in a single program.
Permanent housing available to all residents in affordable, safe, accessible locations.
In order to respond to the full range of needs of homeless people, communities must also have
strong collaborations between homeless services providers and mainstream resources. These
include public housing, food stamps, SSI, SSDI, TANF, job training, health care, mental health
care, substance abuse treatment, community action agencies, and veteran programs among others.
Most often, these mainstream programs have more resources than homeless-specific programs,
and are more able to respond to the specific needs of homeless people.
A careful balance of these essential components must be in place to help individual homeless
people and families transition from homelessness to permanent housing and self-sufficiency, and
to end homelessness in general in a community. According to the National Alliance to End
Homelessness, this balance must include substantial resources to prevent people from becoming
homeless and to quickly move people out of the homeless system and into permanent housing.
An effective Continuum of Care not only includes these fundamental components, but also the
necessary linkages, referrals, and other mechanisms among these components to facilitate the
movement of individuals and families toward permanent housing and self-sufficiency.
19
A comprehensive Continuum of Care plan considers the needs of all people who are homeless.
This means that there are different components of the Continuum of Care in operation that
respond to the particular housing and service needs of different sub-populations of homeless
people, such as homeless veterans or people who are homeless with mental illness, HIV/AIDS,
victims of domestic violence, and/or histories of substance use. Because the population of people
who are homeless is ever changing, the Continuum of Care must be flexible and able to respond
to the shifting needs of homeless people.
A wide range of Continuum of Care planning efforts exist across the country. Some communities
focus their efforts solely on the Continuum of Care application and meet only during the few
months leading to its submission, while others met year-round and focus on the larger system of
homeless programs and services. The most successful planning efforts, according to HUD, are
those that engage in multi-year, strategic planning for homeless programs and services; are well
integrated with mainstream resources; and have the goal of ending homelessness.
While many cities have developed effective Continuums in their communities, one model
Continuum of Care does not exist. Instead, individual components or elements of Continuums
from communities across the nation are considered to be “best practices” or “model programs.”
This allows communities to pick and choose approaches or models within the individual
components to create a Continuum of Care that meets the needs of homeless people and the
community at large.
Table 11 – Inventory of Continuum of Care Beds, 2004
Beds
Men
Women
Persons in
Families
Emergency Shelter
Transitional Housing
Permanent Supportive Housing
Total
Total Beds Available
in 2004
116
98
188
401
Emergency Shelter
Transitional Housing
Permanent Supportive Housing
Total
42
85
46
173
Emergency Shelter
193
Transitional Housing
261
Permanent Supportive Housing
166
Total
Source: Continuum of Care Application, 2003
620
Prevention
For the most part prevention programs are designed to provide services to resolve a client’s
immediate crisis, including basic case management, material assistance, general housing and
employment resources (such as access to classifieds, housing relocation assistance, etc.) and
limited financial assistance. The amount of actual financial assistance available to individuals
and families varies from program to program, depending on the time of year and stability of
program funding. Unfortunately, it is not clear what happens to clients after they receive
assistance from these programs.
20
Recommendation: Create a neighborhood-based homelessness prevention system to
identify and assist people who are at-risk of becoming homeless.
This recommendation calls for the enhancement of current prevention services to develop a
comprehensive and coordinated neighborhood-based homelessness prevention system. The goal
of this system is to provide minimal financial assistance and other services that enable people to
maintain their housing or quickly resettle to more affordable housing. In other words, this system
can prevent a financial crisis from resulting in homelessness.
Activities required to develop a prevention system include:
 Develop a system-wide strategy or vision to prevent homelessness in Toledo.
 Increase and stabilize funding to prevention activities in Toledo.
 Improve coordination between existing prevention assistance providers.
 Improve coordination between existing prevention funders.
 Develop partnerships with community-based institutions.
 Enhance/develop programs based on the needs and service utilization patterns of clients.
Require participation in the local Homelessness Management Information System.
Collect demographic, service utilization, and outcomes data on clients of all
homelessness prevention programs.
With prevention, the potential for long-term savings to the community is great. It requires less
money to prevent a family from being homeless than it does to provide services after a family has
become homeless. Investing resources in prevention activities provides a meaningful and
effective strategy to reduce the number of households entering the shelter system. Prevention
services also greatly benefit individuals and families, by enabling them to maintain their stability
and position in the community.
Outreach
Outreach and assessment services are critical for reaching the hardest to serve homeless people
and bringing them into the homeless assistance system. The goal of these services is to engage,
assess, and link people to the housing and services they need to end their homelessness and
become self-sufficient. The most successful outreach programs have the following
characteristics:
 Provide services to the “hardest to serve” population(s). Most often, the primary
population for outreach programs is people who are living on the streets and have
multiple barriers to housing and employment. These may include chronic substance
abuse, severe mental illness, dual diagnoses (co-existing mental illness and substance
abuse) and veterans. Typically, the target population does not access services or is
underserved by service providers.
 Utilize a proactive, multi-disciplinary approach to service delivery. Using vans and
communication equipment, multi-disciplinary teams (doctors, nurses, psychiatrists, social
workers, etc.) seek out potential clients in areas typically frequented by people who will
benefit the most from the outreach services. These teams do not wait for clients to come
to them; instead, they canvas the streets and encampments looking for homeless people to
engage.
 Focus on engagement. The focus of these programs is to engage people in services they
need and want by establishing a consistent, trusting rapport. Initial contacts focus on the
21
provision of services, such as food, clothing, blankets, medical care, and other services
designed to meet the basic needs of people living on the streets. As the relationship
develops, individuals are assessed and linked to housing and other needed services.
 Housing is ultimate goal. While street outreach programs help ensure the safety of the
people living on the streets, successful programs go beyond this level of service and have
permanent housing as their ultimate goal.
Recommendation: Develop coordinated street outreach services to engage people living on the
streets of Toledo; and connect those individuals to shelter, housing, and other services, as
needed.
This recommendation calls for the development of a coordinated street outreach initiative
designed to engage people living on streets so that they are linked with the services they need to
end their homelessness. This recommendation entails the expansion of currently existing
programs, the development of new outreach services, and the development of collaborations with
community-based outreach partners, such as law enforcement personnel and local businesses.
Activities required to develop a coordinated street outreach strategy include:
 Develop more targeted outreach to site-specific locations.
 Incorporate the resources of faith-based efforts into a community-wide outreach strategy.
 Build on the successes of specific programs, such as Connecting Point for youth and
runaways and the Zepf Center for mental health.
Emergency Shelter
Emergency shelter is typically defined as short-term lodging for people experiencing a housing
crisis. Emergency shelters are the point of entry into the homeless assistance system for many, by
assisting those confronted with an immediate loss of housing or those who are already homeless.
Emergency shelters generally have an official length of stay ranging from 30 to 90 days,
depending on the individual program. However, it is also true that many chronically homeless
people manage to live in an emergency shelter environment for years. Most emergency shelters
are congregate in nature, but can also include individual hotel or motel vouchers and short-stay
apartments.
Typically, emergency shelter providers seek to help clients address barriers to maintaining
housing and build social networks, so that when they do re-enter mainstream society their
chances of cycling back into homelessness are reduced. The type and intensity of services vary by
program. Services may be located on site or administered through partnering agencies. Services
may include case management, drug and alcohol abuse treatment services, mental health services,
education and job training, childcare, and health services.
Some communities are moving toward full-service or one-stop models to assist individuals in
moving out of the emergency shelter phase more easily, while other communities are moving
away from emergency shelter and toward an emphasis on prevention and permanent housing.
These communities typically view emergency shelter as a short-term “band-aid,” when what is
needed is a long-term solution, such as permanent housing.
Toledo current provides a total of 351 beds of emergency shelter according to the inventory of
available beds conducted for the 2003 Continuum of Care funding application for McKinneyVento (HUD) resources. Table 12 below provides a break out of shelter beds by population type
22
and extrapolates the ability to serve individuals as a function of how many times a single bed can
be “turned over” to serve more than one client in the course of a year.
Table 12 – Annual Emergency Shelter Capacity Based on Current Inventory
Population
Men
Women
Families
Number of Beds
Average Length of
Stay
Annual Bed Turnover Rate
116
42
193
30
60
75
12.1
6.1
4.9
Annual # of
Individuals “Able
to be Served”
1,403
256
946
While Table 12 demonstrates that the emergency shelter system in Toledo is able to serve many
clients, Table 13 reveals that shelters may not be able to serve all clients in part because the
supply of beds may not be sufficient. Additionally, the shelter system is often not appropriate or
available to clients with particular disabilities such as persistent mental illness and active
substance abuse.
Table 13 – Need for Additional Emergency Shelter Beds
Population
Men
Women
Families
Projected Annual
Demand
Capacity minus
Demand
(surplus/GAP)
1,310 – 1,550
335 – 400
1,000 – 1,190
93 – 147
79 – 144
54 – 244
Annual Need for
Additional Beds
Based on Turnover Rate
0 – 13
13 – 24
11 – 50
Recommendations:
At this time the available supply of emergency shelter resources may not meet the needs of all
clients. Homeless individuals with specific barriers such as mental illness, large family size,
and substance abuse encounter significant challenges accessing emergency shelter. However,
increasing the permanent supportive housing supply may free up additional space in the
shelter system by creating housing options for individuals currently residing in emergency
shelter. The following recommendations are made to strengthen the emergency shelter system
in Toledo:
 Develop a system-wide strategy or vision to address homelessness in Toledo. In
addition to system-wide approaches, this strategy must include service delivery
approaches at the program level that emphasize housing and seek to end an individual
or families’ homelessness.
 Require participation in the local Homelessness Management Information System.
Collect demographic, service utilization, and outcomes data on clients of all
homelessness prevention programs. Enhance existing programs and develop any new
programs based on the self-identified needs and service utilization patterns of clients.
 Establish inclusive admission policies/practices and relapse-tolerant program
requirements to improve the system’s ability to engage all clients, at all levels of crisis,
addiction, and recovery.
 Develop minimum standards for all emergency shelters. These standards should
address facility, operations and staffing issues.
 Maximize existing, mainstream community resources. Instead of re-creating a new
system for homeless people, the system should develop partnerships with mainstream
23
service providers to improve linkages to mental health and substance abuse treatment
services, and other needed services. Consider partnering to offer on-site satellite
offices at shelter and housing programs. These on-site offices can offer clients quick
and easy access to mental health and substance abuse assessments, entitlement
assistance, and employment resources. Plus, it offers a low-cost strategy to meet the
varied needs of homeless people.
Transitional Housing
Transitional housing is designed to be a step between emergency shelter and permanent housing.
Transitional housing provides interim housing for persons who are not ready for or do not have
access to permanent housing. This type of housing is time-limited, with programs ranging from
six months to two years. This time enables families or individuals to develop the skills and gain
the stability necessary to successfully transition into permanent housing.
Typically, transitional housing programs provide specialized services to various subpopulations
with multiple barriers to housing and employment which can include families in which the head
of household has a chronic illness (such as substance abuse or severe mental illness), people
living with AIDS, victims of domestic violence, substance abusers, people with mental illness,
and youth. Residents have access to intensive services, often provided on site or through
community partners. These range from alcohol and drug abuse treatment to financial counseling
and employment services. As residents become stabilized, providers are expected to help them
find permanent housing.
While some communities continue to develop and provide transitional housing facilities, others
are having second thoughts on the importance and role of transitional housing in their
community, as well as about which types of clients to serve in this form of housing. These
communities believe that the transitional housing phase is disruptive, particularly to families.
Instead of altering the housing situation at an artificial point in time, families need to be in stable
housing and to have service packages that can be modified over time, with more intense case
management provided in the early stages of intervention. Therefore, these communities are
reducing their reliance on transitional housing while increasing their commitment to permanent
housing with transitional supportive services.
Toledo current provides a total of 444 beds of transitional housing according to the inventory of
available beds conducted for the 2003 Continuum of Care funding application for McKinneyVento (HUD) resources. Table 14 below provides a break out of transitional housing beds by
population type. Table 15 extrapolates the future need in transitional housing resources as a
function of current demand for transitional housing services. The need for transitional beds is
based on the actual prevalence of individuals and families who present as homeless and have
intermediate-term needs such as underemployment, domestic violence, chemical addiction, and,
to a lesser extent, mental illness which tends to be a need requiring long-term care. For the
purposes of this analysis, it is assumed that 25% of all homeless men require housing and services
beyond basic emergency shelter. This figure is taken from national studies and research that
suggest that 25% of all homeless men fit into the episodically or chronically homeless typology.vi
For families and single women the figure is adjusted to 40% to account for increased prevalence
of disabilities and domestic violence among single women and the more long term needs that
most families face due to the presence of children. Of all individuals and families designated as
having housing and service needs beyond emergency shelter, 40% will be appropriate for
24
transitional housing and 60% will be appropriate permanent supportive housing. Table 14
illustrates this projected shelter and housing need based.
Table 14 – Projected Transitional Housing (TH) and
Permanent Supportive Housing (PSH) Need
Population
Projected Annual
Emergency Shelter
Homeless Demand
Clients Needing
“Next Step”
Housing
1,310 – 1,550
328 – 388 (25%)
Men
335 – 400
134 – 160 (40%)
Women
1,000 – 1,190
400 – 476 (40%)
Families
“Next Step”
Clients
Requiring TH
(40%)
131 – 155
54 – 64
160 – 190
“Next Step”
Clients
Requiring
PSH (60%)
197 - 233
80 – 96
240 – 286
Table 15 – Annual Transitional Housing (TH) Capacity Based on Current Inventory
Population
Men
Women
Families
Number of TH
Beds
Average
Length of Stay
Annual Bed
Turn-over Rate
98
85
261
280
280
365
1.5
1.5
1
Annual # of
Individuals “Able
to be Served”
147
128
261
While Table 15 demonstrates that the transitional housing system in Toledo is able to serve many
clients, Table 16 reveals that transition programs provide sufficient beds for men and women but
family programs may not be able to serve all clients. Additionally, the transitional housing
system is often not appropriate or available to clients with permanent disabilities such as
persistent mental illness.
Table 16 – Need for Additional Transitional Housing Beds
Population
Projected Annual
Homeless
Demand
Clients
Requiring
Transitional
Housing
1,310 – 1,550
131 – 155
Men
335 – 400
54 – 64
Women
1,000 – 1,190
160 – 190
Families*
*The average number of persons per household is 2.3.
Capacity minus
Demand
(Surplus/GAP)
16 – 8
74 – 64
101 – 71
Annual Need for
Additional Beds
Based on Turnover Rate
6
-
Recommendations:
At this time the available supply of transitional housing resources may not warrant the
development of additional bed capacity. However, clients with specific barriers such as mental
illness, large family size, and substance abuse encounter significant challenges accessing
transitional housing. The following recommendations are made to strengthen the transitional
housing system in Toledo:
 Target existing beds in transitional housing for ex-offenders and substance abusing
men.
 Develop a system-wide understanding of the purpose of transitional housing
programs in Toledo. Consider the appropriate populations for this housing type, as
well as the menu of services required given clients’ needs.
 Develop minimum standards for all transitional housing programs. These standards
should address facility, operations and staffing issues.
25
 Establish inclusive admission policies/practices and relapse-tolerant program
requirement to improve the systems ability to engage all clients, at all levels of
crisis, addiction, and recovery.
 Require participation in local Homelessness Management Information System.
Collect demographic, service utilization and outcomes data on clients of all
homelessness prevention programs.
Permanent Supportive Housing
Permanent supportive housing is housing that does not have a length of stay limit on residency or
a requirement for services. This form of housing also includes a supportive service component,
which focuses on keeping participants in their housing, and is sometimes called service-enriched
housing. In essence, housing comes first in this model. While a wide range of supportive service
options are available to participants, these services are not required. Instead, they are available to
participants whenever they express a desire or need for them. Following this philosophy, most
services are brought directly to the participants on-site; however, some services are offered offsite.
The primary populations for supportive housing are those individuals and families with chronic
disabilities such as severe mental illness, substance abuse, co-occurring disorders, severe physical
illness (including HIV/AIDS), and physically fragile seniors. The focus of housing models
ranges from assisted living programs for persons with late stage chronic alcoholism and other
physical health problems to treatment housing for persons with substance abuse problems.
Typically, a range of treatment housing options is available for people who are at all levels of
willingness and capacity to address their substance abuse: dry, damp, and wet. “Dry” is for those
people who really want to live in a sober setting, who want that kind of support, and who have
those kinds of skills. “Damp” is for those people who want to live in a setting where substance
use is limited. They are willing to live in this setting, but they are not yet able to make an absolute
commitment to being abstinent. “Wet” housing is for those people who are not able to make any
commitment at all, but if they do not receive assistance, they will stay homeless. In practice, the
difference between these three models is related to the on-site use of alcohol. In “dry” housing,
for example, no alcohol consumption of any kind is allowed. By contrast, in “wet” housing,
alcohol use is permitted on site. “Damp” housing is in the middle of these two extremes,
allowing alcohol to be consumed, but only off site.
Supportive housing types are typically independent living settings. However, they vary in their
design and target population. Some programs are configured in one large building and others are
in small, scattered site projects. They are available as single room occupancy, shared apartments,
or other varieties. Supportive services are provided on-site or through partnerships with
community-based agencies off-site, depending on the needs of the individual.
The costs of permanent supportive housing programs may seem high; however, the costs are
much lower than the costs of homelessness. Numerous studies have demonstrated the costeffectiveness and success of this approach. Over and over again, permanent supportive housing is
found to be less expensive than existing options for homeless people: shelter, jail, hospitals,
psychiatric facilities and other temporary “homes” for homeless people.vii
Due to the overwhelming success of these programs, national organizations, such as the National
Alliance for the Mentally Ill, and the Substance Abuse and Mental Health Services
26
Administration, the National Mental Health Association, and U.S. Department of Housing and
Urban Development, have all endorsed permanent supportive housing as a meaningful and
effective solution to end homelessness.
Toledo current provides a total of 400 designated beds of permanent supportive housing
according to the inventory of available beds conducted for the 2003 Continuum of Care funding
application for McKinney-Vento (HUD) resources. This inventory does not include 250 PSH
beds made available to homeless individuals through the Lucas County Public Housing
Authority’s Section 8 program, which, rather than a designated bed for homeless clients,
represents a tenant-based subsidy. Tables 17 and 18 below provide a break out of permanent
supportive housing beds by population type and extrapolates the need or gap in resources as a
function of current demand for permanent supportive housing services.
Table 17 – Annual Permanent Supportive Housing (PSH) Capacity
Based on Inventory
Population
Men
Women
Families
Number of
Beds
Average
Length of
Stay
Annual
Bed Turnover Rate
188
46
166
730
730
730
0.5
0.5
0.5
Annual #
of
Individuals
Able to be
Served
94
23
83
Table 17 demonstrates that the permanent supportive housing system in Toledo is able to serve
200 clients annually. When the number of additional needed beds are converted to housing units
in Table 18 (assuming an average family size of 2.3 individuals), the PSH system needs to be
expanded by up to an additional 450 units to ensure that all chronically homeless individuals and
families with disabilities receive sufficient housing and services.
Table 18 – Need for Additional Permanent Supportive Housing (PSH) Beds/Units
Population
Men
Women
Families
Projected Annual
Homeless
Demand
Clients
Requiring PSH
Capacity minus
Demand
(Surplus/GAP)
1,310 – 1,550
335 – 400
1,000 – 1,190
197 - 233
80 – 96
240 – 286
103 – 139
57 – 73
157 – 203
Annual Need for
Additional PSH
Beds Based on
Turn-over Rate
155 – 208
86 – 110
236 – 305*
*The average number of person per household is 2.3; therefore Table 18 demonstrates a need for
about 133 additional housing units for families.
Recommendation: Develop a permanent supportive housing initiative to include between 344
and 450 units for homeless persons with severe, chronic disabilities.
 Continue to review the need for a Safe Haven component to the Continuum of Care,
serving individuals and with the most chronic and severe needs.
This recommendation calls for the developing of supportive housing for chronically homeless
people that enables them to maintain their own permanent housing. Successful supportive
housing projects and the recommended Toledo supportive housing system would include the
following components:
27
 Inclusive Intake Procedures: Because permanent supportive housing programs are
designed to serve the hardest-to-serve, most chronic homeless populations, the need
for inclusive, easily accessible programs cannot be understated. To facilitate this
need, programs would have the following characteristics:
 Limited barriers to access;
 “Open-door entry,” accepting direct referrals from street outreach, shelter,
and other institutions; and a
 Streamlined admission process.
 Client-Centered Service Delivery: These programs are primarily designed to serve
individuals who have been entrenched in homelessness for years. Many of these
individuals have accessed traditional homeless assistance services numerous times,
but have failed to meet program requirements as a result of their addiction and/or
mental illness, thereby continuing the cycle of homelessness. Successful permanent
supportive housing programs will need to break this cycle by providing flexible,
individualized services that are client-driven. Characteristics of such programs
include:
 Voluntary, integrated services for residents who request it
 Access to comprehensive, wrap-around services
 Relapse-tolerant environments
 Trained, Knowledgeable Providers: Permanent supportive housing programs should
be implemented by agencies that are knowledgeable in issues related to housing
development and intensive supportive services. To satisfy both of these
requirements, collaborations between housing developers and service providers may
need to be developed. Additionally, it is crucial to the success of any program and its
clients to have well-trained, qualified staff on-site.
This system of permanent supportive housing needs to:
 Develop a system-wide strategy or vision to end homelessness in Toledo.
 Increase and stabilize funding to permanent supportive housing in Toledo.
 Improve coordination between street outreach, emergency shelter and permanent
supportive housing programs.
 Develop partnerships with mainstream resources to meet the varied needs of
homeless people.
 Enhance/develop programs based on the needs and service utilization patterns of
clients. Require participation in the local Homelessness Management Information
System. Collect demographic, service utilization, and outcomes data on clients of
all homelessness prevention programs.
28
Part 6
Strategic Action Plan
The following recommendations are designed to support recommended program-level
enhancements and system-wide refinements. Program-level changes can be implemented at
individual points among specific homeless programs and providers, but the success of these
changes must be monitored at a broad-based community level. The viability of quality programs
within a strong system of homeless services will play out as the result of a long-term vision of
community success and achievement.
Review of Programmatic Recommendations
Prevention
 Create a neighborhood-based homelessness prevention system to identify and assist
people who are at risk of becoming homeless.
Outreach
 Provide services to the “hardest to serve” population(s).
 Utilize a proactive, multi-disciplinary approach to service delivery.
 Focus on engagement initially, but housing is the ultimate goal.
Emergency Shelter
At this time the available supply of emergency shelter resources may not meet the needs of all
clients. Homeless individuals with specific barriers such as mental illness, large family size, and
substance abuse encounter significant challenges accessing emergency shelter. However,
increasing the permanent supportive housing supply may free up additional space in the shelter
system by creating housing options for individuals currently residing in emergency shelter.
 Adopt a system-wide strategy or vision to address homelessness in Toledo.
 Require participation in the local Homelessness Management Information System
(HMIS).
 Establish inclusive admission policies and practices.
 Develop minimum standards for all emergency shelters.
 Maximize existing, mainstream community resources.
Transitional Housing
At this time the available supply of transitional housing resources may not warrant the
development of additional bed capacity. However, clients with specific barriers such as mental
illness, large family size, and substance abuse encounter significant challenges accessing
transitional housing.
 Target existing beds in transitional housing for ex-offenders and substance abusing men.
 Develop a strategy and prioritization plan for use transitional housing programs.
 Develop minimum standards for all transitional housing programs.
 Establish inclusive admission policies and practices.
 Require participation in local Homelessness Management Information System (HMIS).
Permanent Supportive Housing
Develop a permanent supportive housing initiative to include between 344 and 450 units for
homeless persons with severe, chronic disabilities.
29

Continue to review the need for a Safe Haven component to the Continuum of Care,
serving individuals and with the most chronic and severe needs.
Continuum of Care Recommendations
Centralized Planning & Funding
Most of the providers in Toledo view themselves as independent and autonomous entities
operating without the context of a guiding vision for homeless service coordination. Interviews
with key informants in Toledo revealed that the lack of a unified vision among service providers
to end homelessness leads to minimal collaboration and few linkages among service providers
and between service providers and mainstream resources. This lack of a guiding vision
contributes to many of the issues identified in this report: gaps and overlaps in service areas,
deficient program planning and design, insufficient and tenuous funding, and, ultimately, a lack
of community support for issues related to homelessness.

Create an impartial and independent centralized planning body that provides multiyear, strategic planning, research and funding for homeless programs and services,
to achieve the goal of reducing homelessness in Toledo.
This recommendation calls for a centralized planning body that promotes a truly inclusive and
comprehensive community planning process for homeless services that covers the full range of
the continuum of care: prevention, outreach and assessment, emergency shelter, transitional
housing, appropriate supportive services, permanent supportive housing, and permanent housing.
In addition to having a multi-year strategic plan for managing, coordinating, and funding
homeless programs and services, Toledo will need to periodically rethink goals and objectives to
achieving the mission of ending homelessness. Maintaining this flexibility can be challenging for
an independent planning body given the current funding climate that all communities are facing.
Critical factors in developing a clear strategy for planning and funding homeless programs and
services include the ability to alter the planning process to meet the changing needs of homeless
subpopulations, to evaluate the quality of programs and services, and to promote the most
successful programs and services.
This centralized planning body needs the political support and financial backing of all major
funders of homeless services and programs. Coordinating funding and allocations decisions
through a centralized agency promotes efficient use of resources and allows for effective
prioritization of homeless subpopulations and service delivery models. Several models for
successful centralized strategic planning and funding currently exist throughout the country; most
notably among them is the Community Shelter Board (CSB) in Columbus, Ohio. Through
collaboration with other systems, community education regarding homelessness, and continued
research and data analysis for effective planning, CSB has developed and implemented a strategy
to increase community awareness about the causes of and solutions to homelessness and
ultimately decrease the demand for emergency shelter. CSB works to promote open access to
emergency shelter for all families and individuals experiencing a housing crisis through the
combined resources of all partners in the Columbus community.
A centralized homeless service body will accomplish the goal of a coordinated, comprehensive,
and targeted response to homelessness with the following activities:

Develop a strategic plan for effective and efficient policy and program development
in homeless services.
30








Develop, implement, and monitor standards for effective homeless service delivery.
Increase collaboration among providers, funders, and mainstream resources.
Allocate resources based on a performance-based funding model.
Bring new sources of revenue to the table from a diversity of funders, including
government, business, and private foundations.
Use the HMIS to support program monitoring, research, policy analysis and shared
case management approaches to homeless service delivery.
Promote program development in all areas of the Continuum but especially
concentrated in the areas of homelessness prevention and permanent supportive
housing.
Research model programs across the country and, when appropriate, provide seed
funding for pilot initiatives locally.
Initiate a community-wide public awareness campaign about the factors that
contribute to an individual’s or family’s homelessness and educate people about the
available solutions.
The centralized homeless service body will monitor the following trends as measures of
community success:



Progress in moving homeless people into permanent housing
Reducing the number of people experiencing multiple periods of homelessness.
Progress in reducing the costs of emergency medical care or other crisis care for
homeless persons.
Performance-Based Funding, Planning, and Evaluation
A performance-based planning approach to homeless services evaluates the performance of
programs and services to determine their effectiveness, efficiency, and equity. It is through
evaluation studies that the community is able to document the progress and performance of goals
established in the planning process. Evaluation results can provide such critical information to
policymakers such as: what are the program outcomes and impacts on participants; who
participates; what services are provided; how do the effects of the program vary across
participants; how well is the program managed; and how can it be improved?
It is time for Toledo community leaders to work with providers of homeless services and
programs to design evaluations that articulate program goals, measure program performance
against those goals, and provide information useful for improving program performance.
Homeless agency directors and managers need to be able to tell others outside their programs
about the value of their programs and to report on service quality, customer satisfaction, and most
importantly, results. This performance-based approach to evaluation will serve to engender
increased public support that is critical for homeless programs.
The key to useful performance measurement is finding intermediate outcome goals and
intermediate outcome objectives by which program managers can demonstrate the results in the
near term (within six months). Intermediate outcomes are intended to connect the design,
development, and implementation of improvement recommendations to the end result that Toledo
is trying to achieve. Program managers can begin to measure the number of homeless clients
who are able to resolve their housing crisis and achieve residential stability as a result of program
involvement. Acting as baseline data, this information can then be compared to quarterly and
semi-annual success rates for programs to establish a basic performance-based evaluation
structure. Intermediate outcome goals can become the key to establishing either accountability by
31
reporting results and showing that a specific program can make a difference or, for management
purposes, confirming whether or not people are better off.

Develop performance-based strategic planning to identify missions, long-term goals,
strategies for achieving the goals, and key external factors. Institute an annual
evaluation process at the program level to identify performance goals, strategies, and
data verification and validation procedures. Report out on an annual basis, comparing
actual performance with performance goals and summarizing evaluation findings.
Increased and Diversified Funding
Many of the programs analyzed as part of this assessment receive a majority, if not exclusive,
funding from a single supporting sector such as the government (HUD SHP, State ESG, and City
CDBG), private community-wide resources (community foundations and United Way), or private
non-public resources (contributions from the faith community and individual donations). This
leaves programs susceptible to the inevitable changes and fluctuations of a single funding source.
Diversifying funding within programs provides a level of security to providers otherwise at risk
of shutting down if a single funding source becomes scarce. Diversifying funding is also a sound
business practice that strengthens and codifies the provision of emergency services by having
multiple points of support. Additionally, diversifying funding provides social service providers
with increased legitimacy in the eyes of clients, other providers, and the broader community by
demonstrating support from throughout the community.




Diversify the funding structure of all significant homeless programs and services.
Mix funding from multiple government sources (city, state, and federal).
Combine funding from public sector and private sector sources, leveraging government
funds with private foundations, United Way, and individual donors.
Minimize reliance on a single funding source by supporting programs with at least two
independent funding sources with no one funding source contributing more than 80%
of the program’s operating budget.
Increased resources through leveraging and partnerships
Homeless service providers are faced with the problem of responding to the needs of homeless
persons with very limited funding in an atmosphere where minimal service coordination exits.
This reality surfaces two fundamental barriers to the success of providers: providers are under
funded and they cannot address the problem of homelessness independently.
The partnerships among homeless service providers and between homeless service providers and
the business community offer an alternate way to address the needs of homeless persons and
respond to the general public’s interest in promoting the health, safety and welfare of downtown
Toledo. Additionally, service partnerships create opportunities to leverage single funding sources
by integrating complimentary services and funding from other providers. Funders like to see that
the projects they are supporting are recognized by other funding sources as sound programs and
services worthy of community investment.

Develop a plan to increase agency operating funds and direct service dollars by
leveraging multiple funding sources and promoting creative and solution-oriented
partnerships.
32
Coordinated Service Provision
While some homeless assistance programs have strong linkages with community resources, most
programs in Toledo have not developed strong partnerships or linkages with community-based
service providers. This lack is, perhaps, most pronounced when looking at service linkages for
people with mental illness and/or substance abuse. Providers identified major gaps in services for
clients with mental illness and/or substance abuse issues. Clients also expressed difficulty finding
these treatment services. Interviews with other key stakeholders echoed these concerns, as many
stakeholders identified services for people with mental illness and/or substance abuse as the
largest unmet need in the Continuum. This lack has negative impacts on homeless persons, as it
prevents many homeless people from getting the assistance they need to move into recovery, and,
subsequently, exit the sheltering system.


Develop service partnerships with community-based service providers to increase
linkages to mental health and substance abuse treatment services, and other needed
services.
Continue to improve access to Social Security benefits among homeless in shelters and
transitional facilities.
This recommendation calls for the development of service partnerships between shelter and other
housing programs and community-based service providers to better integrate mainstream
resources into shelter and other housing programs. These service partnerships will improve
access to needed services, increase inter-system cooperation, and reduce duplication of services.
To increase coordination among service providers, it is recommended that shelter and housing
providers form partnerships with mainstream services. These partnerships may range in purpose
from developing streamlined intake procedures for homeless persons to offering on-site satellite
offices at shelter and housing programs in Toledo. These on-site offices can offer clients quick
and easy access to mental health and substance abuse assessments, entitlement assistance, and
employment resources.
To strengthen the relationships among homeless service providers, coordinated and targeted
advocacy at the system level is strongly recommended. These efforts will entail advocating for
improved access to mainstream resources, enhanced partnerships to better serve persons who are
experiencing a housing crisis, and joint problem-solving ventures. Advocacy efforts should target
all services and programs accessed by precariously housed or homeless persons, including the
physical and mental health care, substance abuse treatment, welfare, and transportation systems.
Staff Training
 Establish on-going education and training opportunities for staff of homeless assistance
programs.
This recommendation calls for an on-going staff training and education initiative to provide
service providers with the skills and information necessary to most effectively meet the needs of
their clients. This initiative may include formal training opportunities for staff, as well as less
formal “brown bag” education seminars focusing on the self-identified training needs of area
providers.
Suggested areas for training and education include, but are not limited to, the following:

Alcohol and drug related issues
33




Community resources
Non-violent crisis intervention techniques
Diversity and cultural competency in service provision
Mental health issues
HMIS
Information is critical to making informed decisions in any field. In the world of homelessness,
there have never been strong, accurate data about who makes up the homeless population or their
service needs. Homeless Management Information Systems provide a means to attain that
information. By gathering and analyzing reliable data on the individuals and families who use
homeless services, Toledo can work to end homelessness.
In conducting research for this report and analyzing available data, the lack of consistently
reliable information has proven to be a challenge. Toledo has endorsed the concept of an HMIS
and significant work has been accomplished in establishing HMIS policies and protocols over the
past two years. Plans to expand participation by area agencies will increase the input of identified
data elements and generate usage and trend reports. These plans are vital to the success of the
system and should continue.
Toledo is still in the initial implementation stage of developing a consistent means by which to
identify service needs, barriers to accessing services, and program-level, regional, and systemwide results. Until recently, advocates and planners have been forced to rely upon point-in-time
census counts to estimate the size of the local homeless population. While this approach has
enabled generalized planning, it has been limited in its scope and usefulness.

Continue to develop and define local standards for HMIS, including further identification
of required data elements and analysis of aggregate HMIS data; expand participation by
all Continuum of Care providers; and develop further plans to pursue the use of HMIS
data for strategic planning and community public awareness campaigns.
Toledo’s Strategic Action Plan for Homeless Services
Years 1-2 Activities:
1. Create an impartial and independent centralized planning body
2. Develop performance-based strategic planning, evaluation, and reporting
3. Develop a plan to increase agency operating funds and direct service dollars
4. Develop service partnerships with community-based service providers to increase
linkages with mental health and substance abuse treatment providers
5. Continue to improve access to mainstream benefits among homeless in shelters and
transitional housing
Years 3-5 Activities:
1. Diversify the funding structure of all significant homeless programs and services
2. Establish on-going education and training opportunities for staff of homeless assistance
programs.
3. Continue to develop and define local standards for HMIS participation and expand use of
HMIS for strategic planning
34
Appendix 1 – Needs Assessment Survey Tool
Needs Assessment
Survey of Homeless Assistance Clients
Introduction
Hello, I am (interviewer’s name) from the City of Toledo Homeless Task Force. We are conducting a survey to obtain
information on the persons who use services such as shelters, drop in centers, and soup kitchens. The survey will take about 20
minutes of your time. The information you give me is used for statistical purposes only. None of this information you give
which could identify you or this place will be released to the public. Participating in this survey is voluntary and there are no
penalties for not answering any questions. If you have no questions, we will begin.
A. What is your name?
Last
B. What is your age?
 Years
First
Middle initial
99  Don’t know/
Refused
Section 1 – Living Condition
1.1 As of today, in what kind of place do you live?
Mark (X) one answer.
1  An emergency shelter
2  A transitional shelter (includes transitional housing)
3  A welfare or voucher hotel
4  A car or other vehicle
5  An abandoned building
6  Anywhere outside (streets, campgrounds, or cardboard box)
7  Hotel or motel that you pay for yourself
8  A house (includes trailers and mobile homes)
9  An apartment
10  Some other place (specify)
________________________________________________
99  Don’t know/Refused
1.2 Over the last seven days, starting yesterday, did
you sleep or rest in the following place?
Read all categories and mark (X) all that
apply.
1  An emergency shelter
2  A transitional shelter (includes transitional housing)
3  A welfare or voucher hotel
4  A car or other vehicle
5  An abandoned building
6  Anywhere outside (streets, campgrounds, or cardboard box)
7  Hotel or motel that you pay for yourself
8  Someone else’s house, apartment, or room.
9  Your own house, apartment, or room (includes group homes)
10  A jail
11  An institution (hospital, detoxification center)
12  Some other place (specify)
________________________________________________
99  Don’t know/Refused
1.3 Over the last 30 days, did you sleep or rest in
the following place?
Read all categories and mark (X) all that
apply.
1  An emergency shelter
2  A transitional shelter (includes transitional housing)
3  A welfare or voucher hotel
4  A car or other vehicle
5  An abandoned building
6  Anywhere outside (streets, campgrounds, or cardboard box)
7  Hotel or motel that you pay for yourself
35
8  Someone else’s house, apartment, or room.
9  Your own house, apartment, or room (includes group homes)
10  A jail
11  An institution (hospital, detoxification center)
12  Some other place (specify)
________________________________________________
99  Don’t know/Refused
Section 1 – Living Condition (Continued)
1.4a Why did you leave your last “regular
housing”?
Regular housing is a place that is meant for living
(apartment or house) and is controlled by you (you
pay rent or mortgage).
Read all categories and mark (X) all that
apply.
1  Couldn’t pay the rent (mortgage)
2  Rent increased and couldn’t afford to pay it
3  Someone who paid the rent/mortgage stopped paying it
4  Lost your job or job ended
5  Fleeing violence or abuse
6  Lost welfare or other case assistance benefit
7  Pushed out, kicked out
8  Was drinking
9  Was doing drugs
10  Went into hospital or treatment program
11  HIV+/AIDS related
12  Became sick or disabled
13  Went into military
14  Went to jail or prison
15  Left town/relocated to other area
16  Other (specify)
________________________________________________
99  Don’t know/Refused
1.4b (Repeat answers marked in 1.4a, and ask) Of
those, what was the main reason that you left?
 Reason Number
1.5 Have you EVER had a place where you paid
the rent, your name was on the lease, or you owned
it?
1  Yes
2  No
99  Don’t know/Refused
1.6 How many times in your life have you been
without regular housing? That is, not living in a
house, apartment, room, or other housing for 30
days or more in the same place? (Including this
time)
1  Just this time
__________ Number of times
99  Don’t know/Refused
Section 2 – Demographics
2.1 Gender
(FILL BY OBSERVATION)
2.2 What is your race
Mark (X) one box for race that the person
considers himself/herself to be.
1  Male
2  Female
1  White
2  Black, African-American, or Negro
3  American Indian/Native American/Alaskan Native
4  Asian/Pacific Islander
5  Black, African-American, Negro & White
6  American Indian/Native American/Alaskan Native & White
7  Asian/Pacific Islander & White
8  Other Multi-Racial (specify)
____________________________________________
99  Don’t know
36
2.3 Are you of Spanish/Hispanic origin? (Mexican,
Puerto Rican, Cuban)
1  Yes
2  No (Not Spanish/Hispanic)
99  Don’t know/Refused
2.4 What is your date of birth?
Month Day
Year
  
99  Don’t know/Refused
2.5 How much school have you completed?
Mark (X) one answer for the highest level
completed or degree received. If currently
enrolled, mark the level of previous grade
attended or highest degree received.
1  No school completed
2  Pre-school through 4th grade
3  5th, 6th, 7th, or 8th grade
4  9th, 10th,or 11th grade
5  12th grade or high school equivalency (GED)
6  Vocational training certificate
7  Some college but no degree
8  Associate degree
9  Bachelor’s degree (e.g., BA, BS)
10  Master’s degree (e.g., MA, MEd, MSW, MBA)
11  Doctorate or Professional degree (e.g. MD, DDS, PhD, JD)
99  Don’t know/Refused
Section 2 – Demographics (Continued)
2.6 Have you ever been on active-duty military
service in the Armed Forces of the United States or
ever in the in the United States military Reserves
or the National Guard? [Veteran Status]
Mark (X) only one.
1  Yes, now on active duty
2  Yes, on active duty in the past, but not now
2  No
99  Don’t know/Refused
2.7 Have you ever in your lifetime spent more than
5 days in a city or county jail?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
2.8 Have you ever in your lifetime served time in a
State or Federal prison?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
2.9 Is any one with you or are you by yourself?
Mark (X) only one.
1  Respondent is alone
2  Spouse
3  Partner/boyfriend/girlfriend
4  Children
5  Other relatives (specify)
____________________________________________
6  Other persons (specify)
____________________________________________
2.10 Do you have children?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
2.11 How many children do you have who are…
A. Under 18
B. 18 and over
__________ Number of children under 18 years old
__________ Number of children 18 years and older
37
2.12 (If respondent has child(ren) under 18 ask the
following:) Do any of your children live with you
now?
Mark (X) only one.
2.13 (If respondent has child(ren) under 18 that are not
with them now, ask the following:) If children not
with you, with whom do they live now?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
1  Child(ren) lives with his/her other parent
2  Child(ren) lives with my parent(s) or in-law(s)
3  Child(ren) lives with other relatives
4  Child(ren) lives in foster care or group home
5  Jail, prison other institution
6  Other (specify)
_____________________________________________
99  Don’t know/Refused
Section 3 – Employment
3.1 Did you do any PAID work at all during the
last 30 days (Anything that brings in money)?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
3.2 During the last 30 days, how many hours did
you usually work per week in paid employment in
all full- or part-time jobs, including day labor?
__________ Number of hours per week
99  Don’t know/Refused
3.3 If you had a job in the last 30 days that you left,
why did you leave that job?
Mark (X) only one.
1  Personal, family (including pregnancy) or school
2  Health
3  Retirement or old age
4  Seasonal work ended
5  Laid off due to poor business conditions
6  Unsatisfactory work arrangements (hours, pay, etc.)
7  Fired because employer considered performance to be unsatisfactory
8  Other (specify)
_____________________________________________
99  Don’t know/Refused
3.4 Are you looking for work right now?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
Section 4 – Sources of Income
4.1 Have you received any money from any of these sources in the last month?
(Read category and mark (X) one box on each line.)
a. Working (including day labor)
b. Temporary Assistance to Needy Families (TANF)
c. Child support
d. Social Security Disability Insurance (SSDI)
e. Supplemental Security Income (SSI) Aged and Disabled
f. Veteran’s disability or Veterans pension
g. Unemployment compensation
h. Relatives or friends
i. Asking for money on the streets
j. Blood or plasma center
k. Illegal activities
Yes
No
1
1
1
1
1
1
1
1
1
1
1
2
2
2
2
2
2
2
2
2
2
2
38
Don’t
Know/
Refused
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
l. Any other activities (specify)
m. No income
4.2 Over the last 30 days, what was your total income from ALL sources?
4.3 Do you receive food stamps now?
Mark (X) only one.
4.4 Do you receive a housing subsidy or housing assistance?
Mark (X) only one.
1
1
2
2
99 
99 
$
.00
1  Yes
2  No
99  Don’t know/Refused
1  Yes
2  No
99  Don’t know/Refused
Section 5 – Physical Health
5.1 Do you have any of the following medical conditions?
(Read categories and mark (X) one box on each line.)
a. High blood sugar (diabetes)
b. Poor blood (anemia)
c. High blood pressure
d. Heart disease/stroke
e. Problems with your liver
f. Arthritis, rheumatism, joint problems
g. Chest infection, cold, cough, bronchitis
h. Pneumonia
i. Tuberculosis
j. Skin disease, skin infection, skin sores, skin ulcers
k. Lice, scabies, other similar infestations
l. Cancer
m. Gonorrhea, syphilis, herpes, other STDs (not AIDS)
n. HIV+/AIDS
o. Use drugs intravenously (shoot up)
p. Other (specify)
q. None
5.2 In the last year, have you received medical care from any of the following places?
(Read categories and mark (X) one box on each line.)
a. A hospital where you stayed at least one night
b. A hospital emergency room
c. A hospital outpatient clinic
d. A doctor or nurse in a shelter or other homeless program
e. Health Care for the Homeless clinic
f. A private doctor’s office (not in hospital or clinic)
g. Other (please specify)
5.3 How would you rate your overall health?
1  Excellent
Mark (X) only one.
2  Good
3  Fair
4  Poor
Yes
No
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
Yes
No
1
1
1
1
1
1
1
2
2
2
2
2
2
2
39
Don’t
Know/
Refused
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
99 
Don’t
Know/
Refused
99 
99 
99 
99 
99 
99 
99 
Section 6 – Mental Health
6.1 Do you take or have you been prescribed
prescription medicine to control your emotions or
mental health or behavioral problems?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
6.2 Have you felt you needed or been told you
needed treatment for emotional or mental health or
behavioral problems during the last 90 days?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
Section 7 – Chemical Dependency
7.1 Do you use alcohol or drugs on regular basis
(several times a week)?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
7.2 If you use alcohol or drugs on a regular basis,
which is your drug of choice (drug most frequently
used)?
Mark (X) only one.
1  Alcohol
2  Cocaine of any form (crack)
3  Marijuana
4  Heroin
5  Prescription drugs without a doctor’s prescription (Oxycoton, et al.)
6  Other (specify)
________________________________________
7.3 Have you felt you needed or been told you
needed treatment for alcohol or drug use during
the last 90 days?
Mark (X) only one.
1  Yes
2  No
99  Don’t know/Refused
Section 8 – Service Needs
8.1 What are the things you need most right now?
Mark (X) the first three answers given by the
respondent.
1  Assistance getting food
2  Assistance getting clothing
3  Transportation assistance
4  Help with legal issues
5  Help with parenting
6  Child care services and payment of costs
7  Help with enrolling children in school
8  Help with domestic violence problems
9  Ability to read and write
10  A GED or other education
11  Help with managing money
12  Help accessing public assistance benefits (TANF, food stamps)
13  Help finding a job
14  Job training
15  Assistance with finding affordable housing
16  $$ help to secure permanent housing
17  $$ help to resolve problems with landlord or current living partner
18  Medical care for yourself
19  Medical care for your children
40
20  Help getting or managing medications
21  Detoxification from alcohol or other drugs
22  Treatment for alcohol or other drug addiction
23  Services for emotional or psychiatric problems
24  Help with finding out availability of resources
25  Other (specify)
____________________________________________
41
Appendix 2 – Service Provider Bed Data
Provider
Number of Beds
Average Stay
Emergency Shelter
Men
Cherry Street Mission
St. Paul’s Community Center
Toledo Gospel Rescue Mission
TOTAL
66
26
24
116
30 days
32
6
4
42
60 days
27
27
87
16
36
193
75 days
38
28
16
8
8
98
6 months
15
12
10
6
2
3
42
85
6 months
44
35
177
5
261
12 months
Women
Cherry Street Mission (Sparrow’s Nest)
Connecting Point
St. Paul’s Community Center
TOTAL
Families
Beach House
Catholic Charities – La Posada
Family House
Interfaith Hospitality Center
YWCA
TOTAL
Transitional Housing
Men
Fresh Attitude
Open Door
NPI – Road to Recovery
St. Paul’s – Denali
St. Paul’s – Dwelling
TOTAL
Women
Cherry Street Mission (Sparrow’s Nest)
Harbor House
Naomi Transitional
Path to Life
St. Paul’s – Denali
St. Paul’s – Dwelling
YWCA
TOTAL
Families
Aurora House
Bethany House
FOCUS
St. Paul’s – Denali
TOTAL
Permanent Supportive Housing
Men
NPI
188
2 years
46
2 years
12
154
166
2 years
Women
NPI
Families
FOCUS
NPI
42
Notes
1
Carol Caton (1990). Homeless in America. New York: Oxford University Press, (p. 12).
Toledo/Lucas County 2003 Application to US Department of Housing and Urban Development for
Continuum of Care funding through the McKinney Act Funding Process.
3
2001 & 2002 T/LC Continuum of Care Application to the US Department of Housing and Urban
Development for McKinney Funding for homeless assistance programs.
4
Dennis Culhane, et al. The Prevalence of Homelessness in 1998: Results from the Analysis of
Administrative Data in Nine US Jurisdictions. Center for Mental Health Policy & Services Research, 2000.
5
Baumohl, Jim, ed. 1996. Homelessness in America. Phoenix: The Oryx Press.
vi
Dennis Culhane, et al. The Prevalence of Homelessness in 1998: Results from the Analysis of
Administrative Data in Nine US Jurisdictions. Center for Mental Health Policy & Services Research, 2000.
vii
Evaluation of Continuums of Care For Homeless People, Prepared by the Urban Institute for the U.S.
Department of Housing and Urban Development Office of Policy Development and Research, May 2002.
2
43