---

 

To:	Honorable Chairman and Members of the Board
From:	Vincent S. Long, County Administrator
Title:	Report on Homelessness in Leon County
Review and Approval:		Vincent S. Long, County Administrator
Department/ Division Review:		Alan Rosenzweig, Deputy County Administrator  Wanda Hunter, Assistant County Administrator
Lead Staff/ Project Team:		Shington Lamy, Director, Human Services and Community Partnerships Abigail Sanders, Human Services Analyst

 

Statement of Issue:

As requested at the February 21^st Board meeting and in partnership with the Big Bend Continuum of Care, this item provides a comprehensive report on homelessness in Leon County including the CoC 2023 Point-In-Time Count on the homeless population. The item also presents the Big Bend Continuum of Care’s five-year 2021-2025 Strategic Plan to address homelessness; details the County’s roles, partnerships, and investments; and provides recommendations that will build on efforts to reduce homelessness and its impact on the community.  The Big Bend Continuum of Care, Leon County Sherriff’s Office, and local homeless service providers including CESC-Kearney Center, Family Promise (formerly Big Bend Homeless Coalition), Capital City Youth Services, Refuge House, Brehon Family Services, and Ability 1^st will participate in the Workshop.

 

Fiscal Impact:  

This item has a fiscal impact.  The item makes recommendations for the allocation of an additional $500,021 in Federal Local Assistance and Tribal Consistency Funding to expand emergency homeless shelter to unsheltered homelessness and loitering in the community.  The item also recommends the extension of the joint agreement between Leon County, City of Tallahassee and Big Bend Continuum of Care for one year (FY 2024) to utilize $625,000 in previously allocated joint American Rescue Plan Act (ARPA) funding ($345,000 County and $280,000 City) to continue programs such as street outreach and Permanent Supportive Housing.

 

Staff Recommendation:

Option #1:       Accept the report on homelessness in Leon County.

Option #2:       In partnership with the City of Tallahassee, amend the American Rescue Plan Act (ARPA) funding Agreement with Big Bend Continuum of Care to extend the term and amend the exhibits in the amount of $345,000 in previously allocated County ARPA funding to the organization, and authorize the County Administrator to execute the amended agreement, subject to legal review by the County Attorney, for the following:

• The establishment of the Big Bend Continuum of Care Community Engagement Liaison position to regularly engage and educate the community and key stakeholders such as faith-based organizations on homelessness.
• Continue funding of the Street Outreach Program to engage unsheltered homeless individuals and families.
• Continue funding of Permanent Supportive Housing to place homeless individuals and families in housing.
• Continue funding to provide training and technical support to nonprofit and faith-based organizations to expand the local homeless services through the Neighborhood Based Partner Capacity Building.

Option #3:       Continue to support the Sheriff’s HOST Deputies with County ARPA funding previously allocated to the Sheriff’s Office for the positions.  

Option #4:       Direct staff to develop a countywide ordinance to make it unlawful to hold a sign or display advertisement in the median of a road for any reason.

Option #5:       Adopt a community campaign to reduce panhandling that includes the establishment of signs developed in partnership with the City of Tallahassee and Big Bend Continuum of Care, to be placed at medians on select County roads.

Option #6:       Allocate an additional $500,021 in Federal Local Assistance and Tribal Consistency Funding to providers of emergency homeless shelter services that reduce unsheltered homelessness and loitering in the community, and authorize the County Administrator to execute the agreements, subject to legal review by the County Attorney.

Option #7:       Direct staff to bring back an agenda item to explore options for long-term and dedicated line-item funding for emergency homeless shelters for FY 2025.

Option #8:       Direct staff to develop a draft policy to require affordable rental developments seeking County funding or bond authorization to set aside a portion of the units for individuals or families exiting homelessness.

 

Executive Summary

 

Homelessness is not unique to Leon County. In 2022, more than 500,000 individuals experienced homelessness across the United States. According to the National Alliance to End Homelessness (NAEH), 2022 saw the highest number of homeless in recorded history of data collection. Nationally, the rate of unsheltered homeless (individuals and families in encampments or vehicles) has increased significantly over the past year. As a result, the U.S. Interagency Council on Homelessness states that communities across the nation are experiencing a crisis in the number of unsheltered individuals and families. NAEH and the National Low Income Housing Coalition have attributed the increase in homelessness to the federal government’s ending its housing assistance and the eviction moratorium that was put in place in response to the COVID-19 pandemic.

The US Department of Housing and Urban Development (HUD) is the federal authority on homelessness services, programming, funding, and regulation.  HUD generally defines homelessness as individuals and families that lack a fixed, regular, and adequate nighttime residence. In 1995, HUD began requiring communities to submit a single application for grant funding to streamline the funding process, encourage coordination of housing and service providers on a local level, and promote the development of Continuum of Care agencies.

Locally, the Big Bend Continuum of Care (CoC) is recognized by HUD and the State of Florida as the regional planning and oversight organization for homelessness in Leon and seven (7) neighboring counties. The CoC governing board includes a County Commissioner, City Commissioner, representatives from the institutions of higher education (i.e., Florida A&M University, Florida State University, and Tallahassee Community College) and homeless service providers.  The CoC is responsible for coordinating homeless service providers, partners, programs, and services as well as the distribution of state and federal funding. This process allows the community to maximize resources to address the highest needs of the homeless population.

The CoC is required to conduct the Point-In-Time (PIT) count each year during the last week of January for the eight-county region.  The PIT count assists the CoC to coordinate community priorities on state and federal homeless funding and develop policy recommendations that address the highest needs of the homeless in the community. The CoC leads volunteers to physically engage and count every person experiencing homelessness.  The 2023 PIT count was conducted from January 23 through 27.  The results of which reflect that the community experienced a 22% increase (801 vs. 659 in 2022) in the overall homeless population after three consecutive years of reductions.   The most significant increase was in the unsheltered population (60% increase). As mentioned earlier, the increase is consistent with national and state trends on homelessness and is a result of the end of federal housing assistance and the eviction moratorium that was put in place in response to the COVID-19 pandemic.

Data collected through the PIT count is an essential component to the CoC’s Strategic Plan which is also required by HUD. In 2021, the CoC adopted its five-year (2021-2025) Strategic Plan which outlines the community’s goals, priorities, objections, actions, and performance metrics to reduce homelessness (Attachment #1). The CoC meets regularly on the Strategic Plan with homeless services providers, human service providers, the County, City, and other key stakeholders to identify programs and resources that can better address the needs of the homeless population. State and federal funding distributed through the CoC must align with its Strategic Plan.

County investments, policies, and initiatives have been consistent with the goals and priorities of the CoC’s Strategic Plan to coordinate resources and collectively address the highest needs of the homeless.  Over the past three years, the County has invested more than $32.5 million to prevent and reduce homelessness. For example, in response to the global pandemic, in 2021 the County and City dedicated $6.272 million in American Rescue Plan Act (ARPA) funding and jointly contracted with the CoC to plan and coordinate the distribution of the funds to address homelessness.  The funding included $1.410 million allocated directly to the CoC for street outreach, Permanent Supportive Housing, and other programs, and $3.075 million to the CHSP to establish the Homeless Services Category.   To date, the distribution of these funds has resulted in the following:

• Engagement and referral of more than 489 unsheltered homeless individuals to services
• Prevention of more than 115 individuals and families from falling into homelessness
• Permanent housing for 51 formerly chronically homeless families
• Facilitated the return of 116 homeless individuals and families to their home community by paying for transportation costs (e.g., bus tickets, car repair, etc.)

 

Building upon the County’s investment, at the April 25, 2023 Budget Workshop, the Board directed that an additional $500,021 awarded from Federal Local Assistance and Tribal Consistency Funding (Consistency Fund) be included for consideration as part of the Workshop. In addition to the financial investment, the County has adopted Strategic Initiatives and Bold Goals that align with the CoC’s Strategic Plan, which include the following:

• Work with the City, CoC, Kearney Center, and other local stakeholders to enhance engagement and awareness of resources available for individuals and families experiencing homelessness to support safe, stable, and inclusive neighborhoods. (2023-11)
• Work with the City, CoC, and street outreach teams to develop corridor plans for North Monroe, Downtown Tallahassee, and Pensacola Street for outreach to unsheltered homeless individuals and to engage residents and businesses to address community aesthetics and neighborhood safety along the corridors. (2023-17)
• Leverage federal funding and relationships with local service providers to increase the number of temporary/transitional housing beds available to those experiencing homelessness. (2023-19)
• Support community partners to place 100 residents experiencing chronic homelessness in Permanent Supportive Housing.  (BG3)

 

To implement the Strategic Initiatives and Bold Goals, the County participates in ongoing meetings conducted by the CoC. Meeting participants include local homeless service providers, the City, faith-based organizations, and other human service providers to identify challenges and discuss innovative solutions and best practices to reduce homelessness. The following challenges have been identified by utilizing the PIT count, the CoC’s Strategic Plan and by evaluating the effectiveness of current programs and services:  1) an increase in the number of unsheltered homeless; 2) insufficient  funding to support emergency shelters  and, 3) the lack of affordable housing. These challenges are consistent with those identified in the Federal Strategic Plan to Prevent and End Homelessness as developed by the United States Interagency Council on Homelessness in December 2022 (Attachment #2). According to the Federal Strategic Plan, the fundamental solution to end homelessness is housing.  Strategies to increase housing and reduce homelessness as highlighted in the Federal Strategic Plan include the following:

 

1. Enhance public engagement, awareness, and safety to better address homelessness.
2. Strengthen the capacity of homeless service providers to reduce homelessness and connect clients to housing.
3. Increase the stock of affordable housing for individuals and families experiencing homelessness.

 

Accordingly, the following 10 recommendations were developed in partnership with the CoC and local homeless service providers and align with the Federal Strategic Plan, as well as the Board’s Strategic Initiatives and Bold Goals, and the CoC’s Strategic Plan. In addition, the County met with other stakeholders and gathered their feedback to ensure their issues and concerns were addressed (Attachments #3 and #4).

 

Enhance public engagement, awareness, and safety to better address homelessness:

1. Establish the CoC Community Engagement Liaison position at the CoC.  Recognizing the need to increase engagement with the community beyond homeless service providers and homeless clients, the CoC would establish the Community Engagement Liaison (Liaison) position utilizing approximately $55,200 in previously allocated ARPA funds.  The Liaison would meet regularly with local stakeholders such as businesses, neighborhoods, and faith-based organizations, to be proactive and responsive to problems at the street level to coordinate effort that interrupt potential impacts of homelessness in the community.  In addition, the Liaison would gather community input to identify and bring resources in coordination with local homeless providers that could reverse the trend of panhandling, loitering, and encampments in areas with high concentrations of homelessness to improve safe, stable, and inclusive neighborhoods.
2. Continue to fund the Street Outreach Teams to engage unsheltered homeless.  Street Outreach teams are employed by homeless service providers to engage unsheltered homeless living outdoors in encampments and vehicles to connect them to housing.  In the past two years, the Street Outreach teams have engaged 489 individuals and families providing them with housing resources, including shelters, hotels, or permanent housing; and assisted approximately 116 individuals and families with transportation costs such as bus tickets and car repairs to return to their home community.  The joint County and City agreement with the CoC for allocated ARPA funding is scheduled to expire September 30, 2023.  The Agreement would be extended to continue the Street Outreach program utilizing approximately $151,800 in previously allocated ARPA funds.  
3. Continue to support the Sheriff’s HOST Deputy Unit. On December 14, 2021, at the request of the Sheriff, the Board established the Homeless Outreach Street Team (HOST) deputy unit to assist with the engagement of the unsheltered homeless and connect them to available resources including social services, meals, and housing. The HOST unit which is comprised of two deputies was officially deployed in June 2022.  The HOST deputies have been an essential component to engaging the unsheltered homeless population in coordination with the CoC and Street Outreach teams. As law enforcement officers, HOST deputies have the authority to make arrests when required. The presence of the HOST deputies is often key to persuading individuals to accept services such as emergency homeless shelters and vacate prohibited areas (i.e. trespassing). Frequently, the HOST deputies coordinate with the Apalachee Center and the City of Tallahassee Police Department to provide services to a homeless individual actively experiencing a mental health crisis. Since June 2022, the HOST deputies have engaged and assisted nearly 300 homeless individuals.

The HOST deputies also engage residents and businesses providing assistance to homeless individuals and to remove individuals when requested by property owners. In partnership with the CoC, the HOST deputies have participated to date in more than 50 meetings with local neighborhood and business organizations to provide information on resources available to the homeless population as well as proper protocol for engaging homeless individuals and families.  As part of its approval of the HOST deputies unit, the Board allocated $491,000 for personnel and equipment and requested that the Sheriff provide an update six-months following the deployment of the HOST deputies. As mentioned earlier, the HOST deputies were deployed in June 2022. On February 21, 2023, the Sheriff provided an update on the HOST deputies at which time he requested that the Board continue to support the HOST deputies. It is recommended that the Board continue to support the Sheriff’s HOST deputies with County ARPA funding previously allocated for the position which has been contemplated in the FY 2024 budget.

4. Consider a countywide ordinance to prohibit solicitation on medians.  On January 25, 2022, the Board considered a countywide ordinance that would have prohibited soliciting on the median for any reason; sleeping or camping in certain public areas, and public urination and defecation to improve public health and safety for individuals and families experiencing homelessness as well as the community at large. Violations ranged from fines for solicitation or public urination/defecation to imprisonment for sleeping or camping in certain public areas. The proposed ordinance was consistent with Federal law governing First Amendment protection of speech as well as the Eighth Amendment prohibition against cruel and unusual punishments. However, the Board did not move forward with adoption of the ordinance primarily due to opposition from the Sheriff and concerns raised by local homeless service providers,  as well as the CoC on its potential impact on homelessness. On February 8, 2022, the Board repealed the Solicitation on Public Streets Ordinance that prohibited soliciting in or on the median of any street within the County because the Ordinance carved out certain activities and was not content-neutral. As a result, currently the County does not have an ordinance to regulate solicitation in or on the median of any street in the unincorporated areas. It is important to note that the City currently has an ordinance prohibiting solicitation on the medians within City limits. As presented during his presentation to the Board on February 21, 2023, the Sheriff continues to oppose the initial ordinance that specifically prohibits sleeping or camping in certain public areas considered by the Board in January 2022. The CoC and homeless service providers have also continued to express their concerns regarding any ordinance that would prohibit sleeping or camping in certain public areas. However, the CoC has expressed support for evaluating an ordinance focused on prohibiting solicitation on medians.

According to the CoC, most individuals that panhandle or solicit at medians are not homeless; rather they are transient or housed.  There has been an increase in the visibility of panhandling on several medians in the community and a public perception that panhandlers are homeless.  Individuals that solicit on medians often block or obstruct traffic to collect money from motorists that assume they are assisting the homeless, which can cause public safety issues. As supported by the CoC and homeless service providers, an ordinance consistent with State law and recent Federal rulings would be brought back to the Board for its consideration to make it unlawful to hold a sign or display an advertisement in a median of a road for any reason and would apply countywide in order to promote safety.  Although the City currently has a similar ordinance governing this behavior within the City limits, which would prevail over a proposed ordinance to the extent of any conflict, the countywide ordinance would continue to protect against such activity within medians in the event the City were to amend or repeal its Ordinance. The proposed ordinance would not prohibit solicitation on sidewalks as this is considered protected speech. The CoC and homeless service providers have expressed support for an ordinance that would make it unlawful to hold a sign or display an advertisement in the median of a road for any reason.

5. Adopt a community campaign to reduce panhandling that includes the establishment of signs at medians on County roads.  To further reduce panhandling and support homeless service providers, a community campaign would be developed in partnership with the City and CoC to encourage donations to the CoC rather than to individuals that panhandle on the streets.  The campaign would include signage at medians on County roads with high frequency of panhandling (Attachment #5). The City intends to install signage at medians on City roads and as a result signs would be placed at most of the roadways with the highest frequency of panhandling.  The funds collected by the CoC would be utilized to support Street Outreach services such as food, hotels, and bus tickets.  Signs would be installed in June following Board ratification of the actions taken at the Workshop. 
6. Allocate $500,021 in one-time Consistency Funding to providers of emergency homeless shelter services that reduce unsheltered homelessness and loitering in the community.  The County, City and CoC have held several meetings with key stakeholders including residents, businesses, and faith-based organizations on the impact of homelessness with specific concerns on loitering, littering, and overall public safety.  Emergency shelters such as The Kearney Center and HOPE Community, provide 24-hour services including sleeping quarters, meals, showers, and case management that can reduce the length of time an individual or family remains homeless.  However, the emergency shelters provide very limited day service in their facilities such as classes and counseling due to a lack of funding. As a result, clients that are not employed or enrolled in an educational program often congregate and loiter along the Pensacola Street corridor and surrounding neighborhoods.  The Kearney Center, HOPE Community, and the Capital City Youth Services shelters are within at least one mile of Pensacola Street.

To strengthen the providers’ capacity to address the impact of homelessness with specific emphasis on unsheltered homeless and loitering, the County would establish a one-time grant process, utilizing the Consistency Funding, to expand daily services at the emergency homeless shelters.  Daily services would provide meals, showers, storage and programs such as job training courses, financial literacy, and mental health and substance abuse services. Daily services must be offered consistently Monday through Friday between the hours of 8 a.m. and 6 p.m. Emergency shelters are anticipated to coordinate, collaborate, and potentially contract with local human services providers to offer programming for daily services. The North Monroe Street and Downtown Tallahassee areas have also been identified as areas with high concentration of unsheltered homelessness based on calls and responses by HOST deputies and street outreach teams. Emergency shelters would coordinate with the CoC, HOST deputies, and street outreach teams to transport homeless individuals loitering in Downtown Tallahassee and North Monroe Street to shelters where daily and other life skills services are offered. Additional locations such as the Senior Center or the VA Office also offer important life skills training.  The emergency shelters would also be required to actively patrol and engage the homeless population along the Pensacola Street Corridor to reduce loitering, littering, and panhandling.

The County worked closely with the CoC and local homeless service providers to develop preliminary services that would maximize the County’s one-time Consistency Funding to most effectively connect homeless individuals and families to resources while reducing loitering, littering, and panhandling in the community.  Emergency shelters have the capacity to provide expanded services, but lack the funding.  Following Board ratification of actions taken at the Workshop, applications with detailed proposals would be accepted for approximately 2-3 weeks. The applications would be reviewed and awarded by the County in partnership with the CoC.  Subsequently, the County would enter into a contract with the awarded emergency homeless shelter to deliver the services that have been described. Services are expected begin later this summer upon contract execution.  To expedite the implementation of expanded services to reduce unsheltered homelessness and loitering, it is also recommended that the Board authorize the County Administrator to execute the agreements, subject to legal review of the County Attorney.

An Oversight Committee comprised of County, CoC, and City staff would ensure daily services are implemented as contracted, and monitor the progress on the reduction of unsheltered homeless, solicitation, and loitering on the North Monroe Street, and Pensacola Street Corridors and Downtown Tallahassee.

7. Evaluate options for dedicated line-item funding for emergency homeless shelters. Recognizing that emergency shelters serve a critical role in meeting the consistent and increasing challenges of homelessness, it is recommended that the County evaluate dedicated, line-item funding for such services.  As detailed later in the item, the federal and state governments provide very limited funding for emergency shelter operations. At the local level, the County and City have historically funded emergency homeless shelters through Community Human Service Partnership (CHSP), which serves as the grant process for human services and funded as a two-year funding cycle. For the current two-year cycle (FY 2023 and FY 2024) the County and City are investing $2 million collectively in emergency homeless shelters for The Kearney Center, HOPE Community, and Capital City Youth Services shelters.  However, the emergency shelters often share that the current level of funding is not sufficient to address significant budget deficits at the shelters for staffing, case management, and other operations necessary to assist homeless individuals and families secure permanent housing. Therefore, the emergency shelter providers have requested that the County and City consider dedicated line-item funding for such programs consistent with the Federal Strategic Plan to Prevent and End Homelessness.

Options would be brought to the Board that evaluate the  establishment of dedicated line-item as well as appropriate funding level for emergency homeless shelters for the Board’s consideration. Options for line-item funding would be examined in partnership with the City, CoC and other community partners such as the Children Services Council  of Leon County (CSC).  Funding of emergency shelters in other like-size communities would be evaluated.  As mentioned earlier, emergency homeless shelters are funded through the CHSP two-year competitive grant cycle for the funding of existing services and programs proposed by the agencies. Rather than providing grant funding, contracts for dedicated line-item funding with the emergency homeless shelters would establish overall objectives, programmatic criteria and performance measures set by the County and other funding partners.   The options brought to the Board would also include proposals for greater oversight of the shelters by the County, City, and CoC to improve operations, financial conditions, and efficiencies to better serve the homeless population and meet community expectations.  Options would be brought back to the Board in fall 2023 for line-item funding in coordination with partners such as the City for the FY 2025 budget process which would align with the next two-year funding cycle for CHSP.

8. Continue to fund capacity building for nonprofits and faith-based organizations to expand homeless services through the Neighborhood Capacity Building Program.  For the past two years, the CoC has utilized County and City ARPA funding to provide training and technical support to build the capacity of the homeless services system. Training and technical support provided by the CoC has assisted nonprofit and faith-based organizations with establishing and implementing rent and utility assistance programs, and to secure supplies such as cots and blankets for cold night shelter services during the winter season. Utilizing approximately $27,600 of previously allocated ARPA funds, the CoC would work in concert with United Partners for Human Services (UPHS) to continue to provide 10-15 nonprofits and faith-based organizations the support to expand services that will reduce homelessness. 

Increase the stock of affordable housing for individuals and families experiencing homelessness:

9. Continue to fund Permanent Supportive Housing to connect homeless individuals and families to housing.  Permanent Supportive Housing (PSH) provides affordable housing assistance typically in the form of housing vouchers to individuals that have been chronically homeless (homeless for one year or more and has a disability). Consistent with the County’s Bold Goal to “support community partners to place 100 residents experiencing chronic homelessness in Permanent Supportive Housing”, the CoC would utilize approximately $110,400 in  previously allocated ARPA funds to house chronically homeless residents.  Thus far, approximately 51 formerly homeless individuals have been housed and it is anticipated an additional 15-20 chronically homeless individuals could be assisted within the next fiscal year. As a result, the County is on track to meet its five-year Bold Goal in 2024.
10. Consider a Policy to require affordable rental developments seeking County funding or bond authorization to set aside units for households exiting homelessness.  As described later in the item, over the past two years, the County has provided $4.3 million in direct funding to increase the number of affordable housing rental units and authorized approximately $148 million in bond financing for the development and redevelopment of affordable multifamily housing projects.  As a result, more than 1,000 affordable rental units will be developed over the next 12-18 months due to actions and investments made by the County.  The units will be reserved for low-income households that earn 60% or below the Area Median Income (AMI) (for example, $42,000 for a family of four).  However, individuals and families experiencing homelessness often earn income at 30% or below the AMI ($27,750 for a family of four).  The State currently requires affordable housing development seeking tax credit funding to set aside a portion of units for special populations such as farmworkers, youth exiting foster care, or the homeless.  A similar policy would be brought back to the Board for its consideration to require affordable rental developments seeking County funding and bond authorization to set aside a portion of their units for the individuals and families exiting homelessness.

 

As mentioned earlier, homelessness is not unique to Leon County. In 2022, more than 500,000 individuals experienced homelessness across the United States. Recent PIT count data have indicated that similar to other communities, the Leon County has experienced an increase in homelessness. However, led by the CoC, and in partnership with the City and local homeless service providers, the County is well position to continue to adopt policies and initiatives and make investments based on nationally recognized strategies to end homelessness.

 

According to the Federal Strategic Plan developed by the United States Interagency Council on Homelessness, the fundamental solution to end homelessness is housing.  This aligns with the CoC’s Strategic Plan which the County has utilized to make investment that programs and services offered by local providers that will reduce homelessness in the community. The recommendations presented are consistent with strategies to increase housing and reduce homelessness overtime that include the following:

 

1. Enhance public engagement, awareness, and safety to better address homelessness.
2. Strengthen the capacity of homeless service providers to reduce homelessness and connect clients to housing.
3. Increase the stock of affordable housing for individuals and families experiencing homelessness.

Over the past three years, the County has invested more than $32.5 million to prevent and reduce homelessness. Collectively, the proposed 10 recommendations represent more than $1 million in funding that would be allocated over the next year; including $585,000 in remaining ARPA funding previously allocated to the CoC and Sheriff’s Office as well as $500,021 in new funding to reduce unsheltered homelessness and loitering in the community through expanded daily service to the homeless population.

 

With the CoC as the lead coordinating entity, the County, the City, HOST deputies, local homeless service providers, and local non-profit agencies will continue to work on the implementation of the recommendations.  Should the Board approve the proposed recommendations, semi-annual status reports would be provided over the next 24 months with updates on the implementation of the recommendations.  Additionally, updates would be incorporated into future items on the adoption of proposed ordinances and policies, CHSP, affordable housing, and the County’s Strategic Plan.

 

Report and Discussion

 

Background:

Leon County is committed to addressing homelessness in partnership with the CoC, City, and local human services providers.  The COVID-19 global pandemic significantly impacted vulnerable populations such as individuals and families experiencing homelessness. In response, the County adopted policies, established programs, and enhanced partnerships to ensure resources were available to address the highest needs of the homeless in the community. Since 2020, the County has taken the following actions:

• Convened the COVID-19 Local Homeless Task Force to coordinate emergency response and mitigation.
• Partnered with the City and Salvation Army to open an emergency Community Relief Center for unsheltered individuals.
• Established and funded non-congregate sheltering for homeless individuals and families experiencing homelessness who were diagnosed with COVID-19 or awaiting testing.
• Created the Tallahassee-Leon County Homeless Dashboard through Geographic Information System (GIS) that provides a real-time snapshot of the homeless system and performance data across dozens of agencies supporting homeless clients.
• Established Street Outreach Teams to fill service gaps and increase access to housing resources.
• Provided $2.1 million in CARES Act funding to homeless shelter service providers.
• Provided $26.4 million in housing and utilities assistance through the Leon CARES Individual Assistance and Emergency Rental Assistance Programs to prevent evictions and utility interruptions for more than 5,000 County residents.
• Established the Landlord Risk Mitigation Fund to increase access to affordable housing for vulnerable tenants.
• Continued the five-year commitment to fund the capital construction debt of The Kearney Center in the amount of $100,000 annually. Currently in the fourth year of funding.
• Created and funded the Sheriff’s Homeless Outreach Street Team (HOST) deputies to provide law enforcement support in the engagement of unsheltered individuals and families.
• Provided $1.78 million in partnership with the City to homeless shelter providers in ARPA funding to reduce the spread of COVID-19 and ensure that shelter facilities met CDC guidelines with the shelter facilities.
• Conducted a joint workshop on homelessness with the City in 2021 which led to:
  • The establishment of the Homeless Services Category within CHSP to provide $3.9 million in County and City General Revenue and ARPA funding.
  • The enhancement of the County and City partnership with the CoC through the funding of street outreach, neighborhood-based agency capacity building, and Permanent Supportive Housing in the amount of $1.410 million.

 

As a result, over the past three years, the County has invested more than $32.5 million in programs and initiatives to reduce homelessness in the community.  These efforts are further detailed in the Analysis section of this item. In addition to financial investments, the County has considered or adopted several policies to address homelessness. Specifically, on November 9, 2021, the Board adopted County Ordinance No. 21-16, amending the Land Development Code, requiring a recommendation by the CoC and a series of community neighborhood meetings prior to the permitting or consideration of homeless shelters in unincorporated Leon County.  Currently, there are no homeless shelters in the unincorporated areas of the county.

Also, on December 14, 2021, the Board considered policy options to address public health and safety issues related to homelessness.  At that time, to ensure the welfare of the County’s residents and visitors and enhance sanitation in public areas, the Board directed staff to develop a draft ordinance to address camping or sleeping in certain public areas; solicitation of any kind in medians or otherwise with anyone in a vehicle on a vehicular travel lane; and urinating or defecating in certain public areas.  The Board also directed for its consideration the repeal of the Solicitation on Public Streets Ordinance adopted in 1997 that was outdated and inconsistent with case law applying the First Amendment to the United States Constitution because  the Solicitation Ordinance carved out exceptions to certain activities and was not content-neutral cases.  The Board directed an item be brought back for its consideration to repeal the Solicitation Ordinance and draft a new ordinance that would regulate soliciting, camping, or sleeping and other activities in certain public areas consistent with federal and state law.  

On January 25, 2022, the Board considered an ordinance to improve public health and safety through better regulation of soliciting, camping or sleeping in certain public areas consistent with case laws.  However, due to the Sheriff’s opposition and concerns raised by the CoC and local homeless service providers the Board did not move forward with adopting the ordinance, and subsequently repealed the Solicitation on Public Streets Ordinance during the scheduled February 8, 2022 public hearing. Currently the County does not have an ordinance to regulate solicitation in or on the median of any street in the unincorporated areas (the City currently has an ordinance prohibiting solicitation on the medians within the City limits).

 

Also during the January 25th regular meeting, the Board requested a status report on the effectiveness of the Sheriff’s HOST deputies unit six months following the implementation and deployment of the new unit.  The Sheriff provided the status report on the HOST deputies unit at the Board’s February 21, 2023 regular meeting.  The report provided data on the HOST deputies’ engagement with unsheltered homeless individuals and families and recommended the continuation of the unit, and further engagement with community stakeholders including faith-based organizations to address homelessness.  Additionally, the Board requested staff to schedule a workshop addressing homelessness which was subsequently scheduled for May 23, 2023, at 1 p.m.

 

 

As requested at the February 21^st Board meeting and in partnership with the CoC, this item provides a comprehensive report on homelessness in Leon County including the CoC 2023 Point-In-Time Count on the homeless population. The item also presents the Big Bend Continuum of Care’s five-year 2021-2025 Strategic Plan to address homelessness; details the County’s roles, partnerships, and investments; and provides recommendations that will build on efforts to reduce homelessness and its impact on the community. 

 

The Big Bend Continuum of Care, Leon County Sherriff’s Office, and local homeless service providers including The Kearney Center Family Promise (formerly Big Bend Homeless Coalition), Capital City Youth Services, Refuge House, Brehon Family Services, and Ability 1^st will participate in the Workshop.

 

This workshop item advances the following FY2022-FY2026 Strategic Initiatives and Bold Goal:

• Work with the City of Tallahassee, Big Bend Continuum of Care, Kearney Center, and other local stakeholders to enhance engagement and awareness of resources available for individuals and families experiencing homelessness in order to support safe, stable, and inclusive neighborhoods.  (2023-11)
• Work with the City of Tallahassee, Big Bend Continuum of Care, and street outreach teams to develop corridor plans for North Monroe, Downtown, and Pensacola Street for outreach to unsheltered homeless individuals and to engage residents and businesses to address community aesthetics and neighborhood safety along the corridors (2023-17)
• Leverage federal funding and relationships with local service providers to increase the number of temporary/transitional housing beds available to those experiencing homelessness. (2023-19)
• Support community partners to place 100 residents experiencing chronic homelessness in Permanent Supportive Housing (BG3)

These particular Strategic Initiatives and Bold Goal aligns with the Board’s Quality of Life Strategic Priority:

• (Q4) Support and promote access to basic healthcare, mental health, affordable housing, and homeless prevention services to our community members most in need.

 

 

Analysis:

The Analysis section commences with national data on homelessness which indicated that the U.S. experienced the highest number of homelessness in recorded history of data collection in 2022. The national data is followed by the HUD-recognized definition of homelessness and overview of the CoC. Subsequently, local data on individuals and families experiencing homelessness in Leon County as collected, prepared and analyzed by the CoC are presented.  The Analysis also describes the homeless response system of organizations, programs, services, and initiatives that serve as the collaborative network to engage, assist and address homelessness in the community with further detail on the County’s role and investments.

 

Finally, the Analysis identifies the current challenges which are consistent with national trends as identified in the Federal Strategic Plan to addressing homelessness, and provides recommendations developed in coordination with the CoC, City and local homeless service partners that align with the CoC’s Strategic Plan, Federal Strategic Plan, as well as the County’s Strategic Initiatives and Bold Goals to build on efforts to reduce homelessness in the community.

 

National Homeless Statistics

Homelessness is not unique to Leon County. In 2022, more than 500,000 individuals experienced homelessness across the United States. According to the National Alliance to End Homelessness (NAEH), 2022 saw the highest number of homeless in recorded history of data collection. Nationally, the rate of unsheltered homeless (individuals and families in encampments or vehicles) has increased significantly over the past year. As a result, the U.S. Interagency Council on Homelessness states that communities across the nation are experiencing a crisis in the number of unsheltered individuals and families. NAEH and the National Low Income Housing Coalition has attributed the increase in homelessness as a result of the end of federal housing assistance and the eviction moratorium.

 

Homelessness and the Big Bend Continuum of Care

The US Department of Housing and Urban Development (HUD) is the federal authority on homeless services programming, funding, and regulation.  HUD defines four categories of homelessness:

• Individuals and families who lack a fixed, regular, and adequate nighttime residence and includes a subset for an individual who is exiting an institution where he or she resided for 90 days or less and who resided in an emergency shelter or a place not meant for human habitation immediately before entering that institution;
• Individuals and families who will imminently lose their primary nighttime residence;
• Unaccompanied youth and families with children who are defined as homeless under other federal statutes who do not otherwise qualify as homeless; or
• Individuals and families who are fleeing, or are attempting to flee, domestic violence, dating violence, sexual assault, stalking, or other dangerous or life-threatening conditions that relate to violence against the individual or a family member.

 

The Big Bend Continuum of Care (CoC) is recognized by HUD as the regional planning and oversight organization for homelessness for Leon, Franklin, Gadsden, Jefferson, Liberty, Madison, Taylor, and Wakulla counties.  As required by HUD, the CoC governing board includes a County Commissioner, City Commissioner, representatives from the institutions of higher education (i.e., Florida A&M University, Florida State University, and Tallahassee Community College), homeless service providers, and representatives from municipalities in the eight counties within its coverage area.  Section 420.6225 of Florida Statutes also recognizes the CoC as the organization responsible for the coordination of community efforts to prevent and end homelessness in the region.  The region is established by the Department of Children and Families (DCF) which oversees homelessness statewide.  The CoC’s primary functions include:

• Planning and Coordination of homeless services in the region – the CoC actively engages stakeholders in the planning and coordination of homeless services in the community.  The CoC holds monthly meetings with homeless service providers to discuss opportunities and challenges to maximize resources in order to reduce homelessness.  The CoC also utilizes a Coordinated Entry System (CES) to triage the most vulnerable individuals and families experiencing homelessness and prioritize homeless resources such as Permanent Supportive Housing and rapid rehousing to end their episode of homelessness.  Through the CES, homeless individuals and families are quickly identified, assessed, referred, and connected to appropriate housing and assistance based on their strengths and needs.   Additionally, in partnership with the County Emergency Management Division, the CoC assists in the coordination activation of temporary cold night shelter services in the community during the winter season.
• Coordination of the distribution of federal and state funding for homelessness – HUD and DCF streamline the award of federal and state funding for homelessness through CoCs.  Homeless service providers cannot apply for annual recurring funding directly to the federal or state government.  Annually, the CoC coordinates and submits applications to HUD for programs such as rapid rehousing and Permanent Supportive Housing on behalf of homeless service providers.  As described further in the item, limited federal and state funding is provided for the emergency homeless shelter operations.
• Operation and management of the Homeless Management Information System – The Homeless Management Information System (HMIS) is a regional database utilized to coordinate and manage client-level data and service provision to homeless individuals and persons at risk of homelessness.  Federal law requires CoCs to operate and manage an HMIS software solution that complies with HUD's data collection, management, and reporting standards.
• Collection and analysis of Point In Time data on homelessness in the region – the CoC conducts the annual PIT count for the region as required by federal law to inform decisions about homelessness funding and policy recommendations.  Each year, the CoC is required to conduct a count of people experiencing homelessness in emergency shelters and unsheltered during the last week of January.

 

Local Data on Homelessness and Trends

The CoC conducted the 2023 PIT count January 23^rd – 27^th for the eight-county region. As shown in Table 1, after three consecutive years of reduction in the overall number of homeless individuals, the region experienced a 22% increase compared to 2022.  However, as mentioned earlier, the increase in the overall population of homelessness and unsheltered homelessness is not unique to this community and is consistent with state trends as reported by other continuum of care agencies around Florida.  Also, the total number of homeless is nearly identical to the number of homeless individuals in 2020. 

 

Table 1.  Point-In-Time (PIT) Count

Population	2023	2022	2021	2020	% Change  (2023 vs. 2022)
All	801	659	621	805	22%
Youth	160	167	91	209	-4%
Veterans	92	86	95	83	7%
Chronic	178	153	197	192	16%
Unsheltered	269	168	91	109	60%

 

The most significant increase in the 2023 PIT count was the number of unsheltered (60% increase) which consists of individuals sleeping in homeless encampments or in their vehicles.  Like other communities, the CoC attributes the increase is consistent with national and state trends on homelessness and is a result of the end of federal housing assistance and the eviction moratorium that was put in place in response to the COVID-19 pandemic.

 

CoC Strategic Plan

To address the challenges and reduce homelessness in the Big Bend Region, in 2021, the CoC adopted a five-year 2021-2025 Strategic Plan.  The plan consists of seven (7) priorities, four objectives, 16 strategic actions, and seven (7) performance metrics approved by HUD.  The priority areas are:

1. Reaching functional zero for veterans experiencing homelessness
2. Reaching functional zero for those experiencing chronic homelessness
3. Ensure no families with minor children experience unsheltered homelessness
4. Develop a Coordinated Community Plan to prevent and end youth homelessness
5. Increase permanent housing options for people with zero to extremely low income
6. Increase permanent housing options for those with criminal and poor or no credit histories
7. Increase and diversify funding dedicated to Permanent Supportive Housing

 

The four objectives and 16 strategic actions associated with the priorities identify the components of the homeless response system comprised of providers, programs, services, and initiatives that serve as the collaborative network to engage, assist, and address homelessness in the community.  The components include outreach and coordinated entry, prevention and diversion, emergency shelter, rapid rehousing, and permanent housing.

 

The County, in partnership with the CoC and the City, have invested in various programs and services which align with the CoC’s Strategic Plan as well as the Federal Strategic Plan to efforts to reduce homeless.  The following presents programs and services that are currently available in Tallahassee-Leon County.

 

Programs and Services for Homelessness

The goal of the homeless programs and services is to prevent or limit the period in which individuals and families experience homelessness.   In coordination with the CoC, homeless service providers offer a variety of programs and services including homeless prevention, diversion, street outreach, emergency shelter operations, rapid rehousing,  Permanent Supportive Housing, and transitional housing.

 

Although state and federal funding are the primary source of funding for the programs and services of the homeless response system, the County’s annual investment in programs and initiatives such as the Direct Emergency Assistance Program, Veteran Emergency Assistance Program, and CHSP have been essential to addressing service gaps and the highest needs for homeless in the community.  The following details the homeless programs and services, the partners that implement the programs and services, and County investment.

 

Homeless Prevention

Homelessness prevention assists individuals and families at imminent risk of becoming homeless and includes financial assistance for rent and utilities to keep families in their homes.  The financial assistance is provided directly to the landlord, mortgage company, and/or utility company.  The goal of homeless prevention programs is to provide financial assistance prior to eviction and/or disruption in utility services.  Several community partners including Family Promise of the Big Bend (formerly Big Bend Homeless Coalition), Capital Area Community Action, Catholic Charities, ECHO, and Salvation Army provide financial and in-kind services to qualifying individuals and households.  Federal funding provided through the City and the CoC is the primary source of funding for homeless prevention programs. 

 

The County also funds and provides direct homeless prevention services through its Direct Emergency Assistance Program (DEAP) and Veteran Emergency Assistance Program (VEAP). DEAP and VEAP provide temporary emergency assistance to Leon County residents for basic necessities such as rent, and utilities/fuel to prevent homelessness for citizens meeting the eligibility requirements.  Residents can receive assistance once every 12 months for a maximum of three times.  VEAP is similar to DEAP but is only available to eligible Leon County residents who are Veterans of the United States military.    In FY 2023, DEAP provided direct emergency assistance to 84 individuals and families, and VEAP has assisted 10 Veterans to date.

 

Diversion Programs

The primary goal of diversion programs is to prevent individuals and families from entering emergency shelters when an alternative is available including housing with family and other support systems.  Diversion Programs help manage capacity and resources at the shelters and  are also essential to assisting non-Leon County residents return to their county of last residence.  These programs offer counseling as well as nominal one-time financial assistance for activities that will connect individuals and families to housing including bus tickets, car repair, and hotel vouchers.  The Kearney Center has operated a diversion program for the last three years funded through non-recurring funds secured through the Florida legislative sessions.   The Kearney Center anticipates receiving another $1.5 million from the 2023 Florida Legislative Session for FY 2024.  Additionally, Family Promise of the Big Bend was allocated $850,000 for two years (FY 2023 and FY 2024) in APRA funds through CHSP for its diversion program that primarily prevents families from being evicted and assists non-Leon County families return to their community of origin.  The diversion programs at The Kearney Center and Family Promise have been critical in assisting the street outreach teams with connecting unsheltered homeless individuals and families to housing.  

Homeless Encampments and Street Outreach

Based on the 2023 PIT count, there were 269 unsheltered homeless individuals counted in late January at approximately 40 encampment locations throughout Leon County.  As previously mentioned, the numbers represent a significant increase in the unsheltered population (60%) since 2022.  These encampments are outdoor areas that are regularly inhabited by three or more homeless individuals.  Encampments may have tents, lean-tos, or other makeshift structures built by the inhabitants, but do not necessarily provide shelter from the elements.  Encampments are generally located in various rights-of-way around the County, including easements, wooded areas behind neighborhoods and shopping centers, parks, and libraries, as well as undeveloped private properties.

   

Street outreach workers employed by local homeless service providers engage unsheltered people experiencing homelessness to connect them with resources such as access to shelter, supplies, housing assistance programs and case management services.  The goal of the outreach teams is to offer services that will get the individuals housed within Leon County or divert them to their community of origin.  Prior to the pandemic, outreach services were provided exclusively to homeless youth by Capital City Youth Services and to Veterans by Family Promise through federal funding.  Shortly following the start of the COVID-19 pandemic, the CoC saw a significant increase in the number of unsheltered individuals as the emergency homeless shelters were forced to limit space to meet Center for Disease and Control Prevention guidelines.  In response to the growth of unsheltered individuals, the County in partnership with the City contracted with the CoC to utilize ARPA funds to establish outreach teams for adults and families through The Kearney Center and Ability 1st. 

 

Presently, twice a week the CoC coordinates outreach teams to engage unsheltered individuals at known encampments by offering services such as hygiene kits, snacks, and water and information on available housing resources.   In further support of these efforts, in 2021, the Board approved the Sheriff’s request to initiate the HOST unit, which is comprised of two deputies who work closely with the CoC and other agencies involved in street outreach to provide a law enforcement presence at camp sites and other areas and discourage unlawful activities.   The officers also coordinate with businesses and community members throughout the County to provide resources as well as address concerns about individuals sleeping at parks and buildings or loitering.

 

The HOST deputies have been an essential component to engaging the unsheltered homeless population in coordination with the CoC and Street Outreach teams. As law enforcement officers, HOST deputies have the authority to make arrests when required. The presence of the HOST deputies is often key to persuading individuals to accept services such as emergency homeless shelters and vacate prohibited areas (i.e. trespassing). Frequently, the HOST deputies coordinate with the Apalachee Center and the City of Tallahassee Police Department to provide services to a homeless individual actively experiencing a mental health crisis. Since June 2022, the HOST deputies have engaged and assisted nearly 300 homeless individuals.

 

The HOST deputies also engage residents and businesses providing assistance to homeless individuals and to remove individuals when requested by property owners. In partnership with the CoC, the HOST deputies have participated to date in more than 50 meetings with local neighborhood and business organizations to provide information on resources available to the homeless population as well as proper protocol for engaging homeless individuals and families. 

 

Corridor Plans and Street Outreach

The County has worked closely with the CoC, City, HOST deputies, and street outreach teams to develop corridor plans to better address encampments, loitering, littering, panhandling, and other activities in areas with a high concentration of unsheltered homeless. The areas include North Monroe Street, Downtown Tallahassee, and Pensacola Street. At its Annual Retreat in January 2023, the Board adopted a strategic initiative to work with the City, CoC, and street outreach teams to develop corridor plans for North Monroe, Downtown Tallahassee, and Pensacola Street for outreach to unsheltered homeless individuals and to engage residents and businesses to address community aesthetics and neighborhood safety along the corridors.

 

Working with residents, businesses, and key stakeholders in the respective areas, the corridor plans will establish boundaries for a higher frequency of engagement with the homeless by street outreach teams, HOST deputies, the City’s Crisis Unit, which provides law enforcement and mental health professional support for individuals actively experiencing a mental health crisis.  The corridor plans will identify neighborhood, business, and faith-based representatives to meet regularly to provide awareness and gather feedback on policies, programs, and resources deployed to reduce unsheltered homelessness and improve public safety.  The corridor plans are expected to be completed by the CoC in late 2023.

 

In the interim, the street outreach teams and HOST deputies, led by the CoC have conducted two-week long intense engagement of homeless persons camping or loitering in hot spots within the corridors.  For two weeks a hot spot (for example the Chain of Parks in Downtown Tallahassee) is targeted daily with resources such as snacks and water to build relationships with the unsheltered homeless and connect them to shelter or housing. The teams identified 33 individuals who were experiencing unsheltered homelessness, with most of those individuals having experienced homelessness for more than one year and having at least one type of disability.  Of the 33 unsheltered individuals identified, seven reported having an income.  Based on the coordinated outreach efforts, the greatest needs of the unsheltered in these areas include access to emergency supplies (food, water, clothing, etc.), emergency shelter, permanent housing, transportation assistance, physical and mental health services, and Narcan supplies.  Some of the needs such as food, water, and Narcan supplies, can be provided more quickly and easily through current outreach efforts, while others require more collaboration with and support from current human service providers.

 

The two-week exercise is also being utilized to develop the corridor plan.  The process has allowed the street outreach teams to gain knowledge of the behavior and activities of the unsheltered as well as the areas (parks, businesses, abandoned building, etc.) they frequent.  Such information will be essential to the corridor plans.  

 

Emergency Shelter Operations

Emergency shelter operations provide immediate, short-term shelter (less than three months) for individuals and families experiencing homelessness.  Currently, there are four emergency homeless shelters in the County: The Kearney Center, which serves single men and women; HOPE Community operated by Family Promise, which serves families; Capital City Youth Services, which serves youth ages 10-17 years old; and Refuge House which services survivors of domestic and sexual violence. In addition to housing, the shelters provide meals, showers, and case management to its clients.   

 

Emergency shelters are an essential component of the County’s Comprehensive Emergency Management Plan (CEMP).  In the event of natural disasters or sustained cold temperatures, the emergency shelters can temporarily expand operations to meet an increased demand for services.  In 2010, the CEMP established the temporary cold night shelter process.  Community partners activate the cold night sheltering plan when an apparent temperature of 35 degrees or colder is anticipated for three consecutive hours prior to sunrise.  The Kearney Center, HOPE Community, and CCYS respectively, serve as the primary shelter for homeless individuals, families, and youth during cold night activations.  When it is determined that the shelters are at capacity, other community partners such as churches serve as temporary cold night shelters.

 

As reflected in Table 3, the designated emergency shelters’ bed capacity totals 590.  Emergency homeless shelters play a critical role in the length of time an individual or family remains homeless and their chances of returning to homelessness. Once in a shelter, resources such as case management, rapid rehousing, and pathways to permanent housing improve outcomes for individuals and families.

 

Table 3.  Emergency Shelter Capacity

Shelter Name	Current Bed Capacity
The Kearney Center	375
HOPE Community	160
CCYS Someplace Else	18
Refuge House	37
TOTAL CAPACITY	590

 

The County, in partnership with the City provides annual funding to The Kearney Center, HOPE Community, and CCYS for ongoing shelter operations through CHSP.  The County and City are providing $1 million annually for the two-year CHSP funding cycle to emergency shelters (FY 2023 and FY 2024).  In addition to funding provided through CHSP, the County has provided The Kearney Center $100,000 annually since 2015 towards debt service for the construction of the facility. Thus far, the County has provided The Kearney Center $900,000 for debt service (not including CHSP funding).  The County is scheduled to make a final payment for debt service on behalf of The Kearney Center in FY 2024.

 

Federal and state funding for emergency shelter is significantly limited.  According to the CoC, local emergency shelters do not receive funding for ongoing operations such as case management, meals, and maintenance through the federal government. In a recent meeting with HUD representatives, the federal agency shared that its priority is to invest in permanent housing programs not emergency shelter operations.  At the state level, in FY 2023, $38,853 was allocated for ongoing emergency shelter operations in Leon County. Therefore, local funding is critical to the ongoing operation of emergency homeless shelters.  However, the emergency shelters have shared that the current level of funding is not sufficient to address significant budget deficits in staffing, case management, and other operations necessary to assist homeless individuals and families to secure permanent housing.

Rapid Rehousing

Rapid rehousing provides short-term rental assistance and services to individuals and families experiencing homelessness for at least one night.  The goals are to help people move immediately out of homelessness, increase self-sufficiency, and to stabilize in permanent housing.  Services include rent and utility payments (typically for six months or less but can be up to 24 months), security deposits, move-in costs (application fee, furniture, etc.) and case management.  Rapid rehousing programs are provided by Family Promise, Catholic Charities, and Ability 1^st  through federal funds provided by the CoC.  In FY 2023, the CoC received $75,000 for Rapid Rehousing programs from DCF.  This year the Florida Legislature appropriated $1.8 million for statewide rapid rehousing in FY 2024 (compared to $500,000 for FY 2023).  As a result, the CoC is anticipated to receive a significant increase in rapid rehousing funding to distribute to local providers.  Additionally, Family Promise received over $500,000 from the County and City through CHSP to operate a housing program to stabilize families via rapid rehousing.

Transitional Housing

Transitional housing serves as a bridge to permanent housing that generally provides up to 24 months in housing accommodation as well as support for individuals experiencing a disabling condition including physical disability, serious mental illness and/or substance use disorder.  Transitional housing provides structure, supervision, support, life skills, and in some cases, education and training.  Some of these programs are funded through a combination of local and private funding.  There are others that require and receive nominal rent from clients.  The federal government and CoC do not currently fund transitional housing.

 

In Leon County, the Good Samaritan Network/Chelsea House offers transitional and temporary housing for families and men at risk of homelessness; Good News Outreach/Maryland Oaks Crossing provides transitional housing for families with at least one child; Good News Outreach/Mercy House provides transitional housing for men and women reentering society from prison; Joseph House provides transitional housing for men reentering society from prison; and Tallahassee Veterans Village provides transitional housing and supportive services to homeless Veterans to stabilize and prepare them for a life of independence, and veterans can stay in the program for up to two years; Twin Oaks Transitional Home offers emergency shelter and transitional housing to homeless women and children; Brehon House serves homeless, pregnant women ages 18 and older; Refuge House serves victims of domestic violence, sexual assault, prostitution and sex trafficking, and their children; and Capital City Youth Services’ Tree House program offers transitional housing for youth in crisis.  According to the CoC there are 109 beds for transitional housing provided by Brehon House, CCYS, Refuge House, and the Veterans Village.  However, as previously mentioned there are other smaller providers in the homeless service sector that offer transitional housing as well as entities like Big Bend After Action Reentry Coalition that are looking to strengthen the capacity of transitional housing services for men and women reentering society from prison.  These entities play a vital role to the sector and could benefit from the capacity building efforts of UPHS and the CoC as previously mentioned.

 

Permanent Supportive Housing

Permanent supportive housing (PSH) combines affordable housing assistance and subsidies with voluntary support services to address the needs of the chronically homeless with at least one member (adult or child) with a disability.  The services are designed to build independent living skills and connect people with community-based health care, treatment, and employment services.  Permanent supportive housing is provided locally by Family Promise and Ability 1^st and is funded through federal funds provided by the CoC and ARPA funds through CHSP. Since 2021, County and City ARPA funds have been used to  permanently house 51 individuals.  Family Promise operates several apartment complexes and utilizes scattered site apartments to operate PSH programs for Veterans and families, whereas the Ability 1^st PSH programs utilize master leasing which enables the agency to be the primary tenant on the lease and sublease to the rental unit to the client. The flexibility of master leasing allows Ability 1^st to ensure the agency can place someone else in the unit if the initial client moves out as well as minimizes the risk to the landlord.  

Housing Choice Vouchers

Another significant provider of permanent housing in the community is the Tallahassee Housing Authority which provides housing choice vouchers to many individuals and families the community.  The federal Housing Choice Vouchers program subsidizes the entire or a significant portion of rent costs for low-income households and people experiencing homelessness.  The Housing and Urban Development-Veterans Affairs Supportive Housing (HUD-VASH) program combines HUD’s Housing Choice Voucher rental assistance for homeless Veterans with case management and clinical services provided by the U.S. Department of Veteran Affairs (VA).  The VA provides these services to participating Veterans at VA medical clinics, community-based outreach clinics, through VA contractors, or through other VA designated entities.  Additionally, the Tallahassee Housing Authority partners with the Big Bend Continuum of Care to provide 30 housing choice vouchers to households exiting homelessness.  In July 2021, HUD initiated the Emergency Housing Voucher Program established in the ARPA through select Public Housing Authorities.  Tallahassee Housing Authority was awarded and utilized 66 vouchers to be administered in partnership with the CoC to house homeless households for up to 18 months, some of which are still being utilized to provide housing.  At this time, there is no indication that the Tallahassee Housing Authority will receive any additional housing vouchers.  

 

State and Federal Funding for Homelessness

The state and federal government are the primary source of funding for homelessness.  Through DCF, the State funds programs such as street outreach, homeless prevention, diversion, rapid rehousing, and emergency shelter operations. For FY 2023, the State allocated $1.8 million for homeless programs in the community. This includes $1.5 million to The Kearney Center for a diversion program and approximately $375,000 through the CoC for street outreach, homeless prevention, rapid rehousing, and emergency shelter operations. Approximately $38,852 of the CoC funding provided by the State is for shelter operations. Through the FY 2024 State Budget approved by the Legislature, approximately $4.7 million is anticipated to be provided to local homeless service providers and the CoC, subject to the Governor’s approval.  This would include $1.5 million for a diversion program to the The Kearney Center and $2.9 million in one-time funding for renovations at HOPE Community.  The CoC anticipates it will receive increase funding in the FY 2024 budget but has not been notified on the amount. However, the CoC anticipates that the State will continue to provide approximately $38,852 for ongoing emergency shelter operations in FY 2024. 

Through the CoC, the federal government provides funding for a variety of homeless programs such as permanent supportive housing, rapid rehousing, and street outreach for youth.  In partnership with the U.S. Department of Veteran Affairs, HUD funds street outreach for Veterans. For FY 2023, through HUD, the community was allocated $1.9 million in funding for permanent supportive housing, rapid rehousing, and street outreach for youth.   However, according to the CoC, the federal government does not provide funding for the operation of local emergency homeless shelters.  During a recent meeting, HUD shared with County staff that the agency’s primary focus is permanent housing and not emergency shelter operations.

Local Funding for Homelessness

Local investment has been essential to the operation of emergency homeless shelters as well as the overall provision of homeless services.  The County, in partnership with the City, fund homelessness services as part of the CHSP.  As described in the following sections, in 2021, the County and City jointly contracted with the CoC to plan and coordinate the award and distribution of ARPA funding in the amount of $6.272 million through the CoC and CHSP Homeless Service Category.  The following provides details of the use of the ARPA funding as well as ongoing investments through CHSP.

 

American Rescue Plan Act

The County and City invested $6.272 million in homelessness through ARPA as reflected in Table 4. The County and City contracted with the homeless shelter providers directly in the total amount of $1,787,000 to address outstanding COVID-19 expenses and infrastructure improvements for four homeless shelters; $1,410,000 to the CoC to expand local street outreach, build service provider and neighborhood-based agency capacity, and expedite the number of providers and inventory of permanent supportive housing for the most vulnerable and chronically homeless population; and allocated $3.075 million in one-time funding through the Homeless Services Category under the CHSP for the FY23 and FY24 funding cycle to fund emergency shelters, diversion, prevention, and permanent supportive housing programs.

 

Table 4.  ARPA Funding for Homeless Services

Funding Entity	Amount
CHSP	$3,075,000
Homeless Shelter Providers*	$1,787,000
CoC	$1,410,000
Total	$6,272,000

*CESC-Kearney Center, Big Bend Homeless Coalition, Capital City Youth Services, and the Refuge House

To date, the County and City ARPA investment has led to the engagement of more than 489 unsheltered homeless individuals and families, prevented homelessness for over 115 individuals and families; and permanently housed 51 households that were formerly homeless.  In addition, the street outreach teams have provided at least 116 bus passes to assist homeless individuals and families in leaving Leon County.

 

Community Human Services Partnership (CHSP)

For more than 20 years, the County and City have worked collaboratively through CHSP to provide a “one stop” shop for human services grant funding to our community human service agencies.  Agencies and programs receive funding through 11 funding categories recommended by citizen review teams and approved by the County and City Commissions, respectively.  Programs such as emergency shelter, rapid rehousing, homeless prevention, permanent supportive housing, and street outreach are funded through the Homeless Services Category. In FY 23 and FY 24 homeless programs will receive a total of $2,334,693 each year in the current CHSP funding cycle, as reflected in Table 5.

 

Table 5. Annual CHSP Homeless Program Funding

Agency/Program	Amount
Ability 1st N.E.S.T. Program	$111,744
Ability 1st Permanent Supportive Housing	$81,767
Family Promise of the Big Bend HOPE Community	$419,588
Family Promise of the Big Bend Diversion	$425,000
Family Promise of the Big Bend Permanent Supportive Housing	$518,989
Brehon Institute – Brehon House	$116,855
Capital City Youth Services Youth Shelter	$260,000
Capital City Youth Services Street Outreach	$80,750
CESC-Kearney Center Emergency Shelter/Case Management	$320,000
CESC-Kearney Center Health Services*	$50,000
Total	$2,384,693

*CESC-Kearney Center Health Services are funded through the Health Services CHSP category, but the services are provided to homeless individuals at The Kearney Center

Funding is categorized into subcategories to align with HUD funding categories which are: street outreach, homeless prevention, shelter operation and essential services, permanent supportive housing, and rapid rehousing.  Through the implementation of the Homeless Services Category, staff worked with the CoC to align CHSP metrics with federal system performance measurements to enhance efficiency in program reporting and evaluation.  In the fall, the Board will be presented with the CHSP performance metrics for the Homeless Services Category as well as the other ten categories.

As presented, the programs and services provided through local, state, and federal investments are essential to reducing homelessness in Leon County.  However, as the recent PIT count and feedback from the community indicates there are challenges that must be addressed with innovative solutions to build upon the coordination efforts to leverage and maximize resources. The efforts are led by the CoC in collaboration with homeless service providers, the County, and City.  As detailed in the next section, according to the CoC greater coordinated participation and engagement with the broader community including key sectors such as faith-based organizations and the business community to reduce homelessness in Leon County are needed.

Current Challenges and Recommendations

The County participates in ongoing meetings conducted by the CoC that include local homeless service providers, the City, faith-based organizations, and other human service providers to identify challenges and discuss innovative solutions and best practices to reduce homelessness. As reflected in the Federal Strategic Plan, the challenges that Leon County and the Big Bend region is experiencing is common nationwide.  The following challenges have been identified by utilizing the PIT count, the CoC’s Strategic Plan and by evaluating the effectiveness of current programs and services:  1) an increase in the number of unsheltered homeless; 2) insufficient funding to support emergency shelters and, 3) the lack of affordable housing.

 

According to the Federal Strategic Plan, the fundamental solution to end homelessness is housing.  Strategies to increase housing and reduce homelessness as highlighted in the Federal Strategic Plan include the following:

 

1. Enhance public engagement, awareness, and safety to better address homelessness.
2. Strengthen the capacity of homeless service providers to reduce homelessness and connect clients to housing.
3. Increase the stock of affordable housing for individuals and families experiencing homelessness.

 

Accordingly, the following 10 recommendations were developed in partnership with the CoC and local homeless service providers and align with the Federal Strategic Plan as well as the Board’s Strategic Initiatives and Bold Goals and the CoC’s Strategic Plan. In addition, the County met with other stakeholders and gathered their feedback to ensure their issues and concerns were addressed.

Enhance public engagement, awareness, and safety to better address homelessness:

1. Establish the CoC Community Engagement Liaison position at the CoC.  Recognizing the need to increase engagement with the community beyond homeless service providers and homeless clients, the CoC would establish the Community Engagement Liaison (Liaison) position utilizing approximately $55,200 in previously allocated ARPA funds.  The Liaison would meet regularly with local stakeholders such as businesses, neighborhoods, and faith-based organizations to be proactive and responsive to problems at the street level to coordinate effort that interrupt potential impacts of homelessness in the community.  In addition, the Liaison would gather community input to identify and bring resources in coordination with local homeless providers that could reverse the trend of panhandling, loitering, and encampments in areas with high concentrations of homelessness to improve safe, stable, and inclusive neighborhoods.
2. Continue to fund the Street Outreach Teams to engage unsheltered homeless.  Street Outreach teams are employed by homeless service providers engage unsheltered homeless living outdoors in encampments and vehicles to connect them to housing.  In the past two years, the Street Outreach teams have engaged 489 individuals and families providing them with housing resources, including shelters, hotels, or permanent housing; and assisted approximately 116 individuals and families with transportation costs such as bus tickets and car repairs to return to their home community.  The County and City joint agreement for allocated ARPA funding with the CoC is scheduled to expire September 30, 2023.  The Agreement would be extended to continue the Street Outreach program utilizing approximately $151,800 in previously allocated ARPA funds. 
3. Continue to support the Sheriff’s HOST Deputy Unit. On December 14, 2021, at the request of the Sheriff, the Board established the Homeless Outreach Street Team (HOST) deputy unit to assist with the engagement of the unsheltered homeless and connect them to available resources including social services, meals, and housing. The HOST unit which is comprised of two deputies was officially deployed in June 2022.  The HOST deputies have been an essential component to engaging the unsheltered homeless population in coordination with the CoC and Street Outreach teams. As law enforcement officers, HOST deputies have the authority to make arrests when required. The presence of the HOST deputies is often key to persuading individuals to accept services such as emergency homeless shelters and vacate prohibited areas (i.e. trespassing). Frequently, the HOST deputies coordinate with the Apalachee Center and the City of Tallahassee Police Department to provide services to a homeless individual actively experiencing a mental health crisis. Since June 2022, the HOST deputies have engaged and assisted nearly 300 homeless individuals.

The HOST deputies also engage residents and businesses providing assistance to homeless individuals and to remove individuals when requested by property owners. In partnership with the CoC, the HOST deputies have participated to date in more than 50 meetings with local neighborhood and business organizations to provide information on resources available to the homeless population as well as proper protocol for engaging homeless individuals and families.  As part of its approval of the HOST deputies unit, the Board allocated $491,000 for personnel and equipment and requested that the Sheriff provide an update six-months following the deployment of the HOST deputies. As mentioned earlier, the HOST deputies were deployed in June 2022. On February 21, 2023, the Sheriff provided an update on the HOST deputies at which time he requested that the Board continue to support the HOST deputies. It is recommended that the Board continue to support the Sheriff’s HOST deputies with County ARPA funding previously allocated for the position which has been contemplated in the FY 2024 budget.

4. Consider a countywide ordinance to prohibit solicitation on medians.  On January 25, 2022, the Board considered a countywide ordinance that would have prohibited soliciting on the median for any reason; sleeping or camping in certain public areas, and public urination and defecation to improve public health and safety for individuals and families experiencing homelessness as well as the community at large. Violations ranged from fines for solicitation or public urination/defecation to imprisonment for sleeping or camping in certain public areas. The proposed ordinance was consistent with Federal law governing First Amendment protection of speech as well as the Eighth Amendment prohibition against cruel and unusual punishments. However, the Board did not move forward with adoption of the ordinance primarily due to opposition from the Sheriff and concerns raised by local homeless service providers, as well as the CoC on its potential impact on homelessness. On February 8, 2022, the Board repealed the Solicitation on Public Streets Ordinance that prohibited soliciting in or on the median of any street within the County because the Ordinance carved out certain activities and was not content-neutral. As a result, currently the County does not have an ordinance to regulate solicitation in or on the median of any street in the unincorporated areas. It is important to note that the City currently has an ordinance prohibiting solicitation on the medians within City limits. As presented during his presentation to the Board on February 21, 2023, the Sheriff continues to oppose the initial ordinance that specifically prohibits sleeping or camping in certain public areas considered by the Board in January 2022. The CoC and homeless service providers have also continued to express their concerns regarding any ordinance that would prohibit sleeping or camping in certain public areas. However, the CoC has expressed support for evaluating an ordinance focused on prohibiting solicitation on medians.

According to the CoC, most individuals that panhandle or solicit at medians are not homeless; rather they are transient or housed.  There has been an increase in the visibility of panhandling on several medians in the community and a public perception that panhandlers are homeless.  Individuals that solicit on medians often block or obstruct traffic to collect money from motorists that assume they are assisting the homeless, which can cause public safety issues. As supported by the CoC and homeless service providers, an ordinance consistent with State law and recent Federal rulings would be brought back to the Board for its consideration to make it unlawful to hold a sign or display an advertisement in a median of a road for any reason and would apply countywide in order to promote safety.  Although the City currently has a similar ordinance governing this behavior within the City limits, which would prevail over a proposed ordinance to the extent of any conflict, the countywide ordinance would continue to protect against such activity within medians in the event the City were to amend or repeal its Ordinance. The proposed ordinance would not prohibit solicitation on sidewalks as this is considered protected speech. The CoC and homeless service providers have expressed support for an ordinance that would make it unlawful to hold a sign or display an advertisement in the median of a road for any reason.

5. Adopt a community campaign to reduce panhandling that includes the establishment of signs at medians on County roads.  To further reduce panhandling and support homeless service providers, a community campaign would be developed in partnership with the City and CoC to encourage donations to the CoC rather than to individuals that panhandle on the streets.  The campaign would include signage at medians on County roads with high frequency of panhandling. The City intends to install signage at medians on City roads and as a result signs would be placed at most of the roadways with the highest frequency of panhandling.  The funds collected by the CoC would be utilized to support Street Outreach services such as food, hotels, and bus tickets.  Signs would be installed in June following Board ratification of the Workshop item. 
6. Allocate $500,021 in one-time Consistency Funding to providers of emergency homeless shelter services that reduce unsheltered homelessness and loitering in the community.  The County, CoC, and City have held several meetings with key stakeholders including residents, businesses, and faith-based organizations on the impact of homelessness with specific concerns on loitering, littering, and overall public safety.  Emergency shelters such as The Kearney Center and HOPE Community, provide 24-hour services including sleeping quarters, meals, showers, and case management that can reduce the length of time an individual or family remains homeless.  However, the emergency shelters provide very limited day service in their facilities such as classes and counseling due to a lack of funding. As a result, clients that are not employed or enrolled in an educational program often congregate and loiter along the Pensacola Street corridor and surrounding neighborhoods.  The Kearney Center, HOPE Community, and the Capital City Youth Services shelters are within at least one mile of Pensacola Street.

To strengthen the providers’ capacity to address the impact of homelessness with specific emphasis on unsheltered homeless and loitering, the County would establish a one-time grant process, utilizing the Consistency Funding, to expand daily services at the emergency homeless shelters.  Daily services would provide meals, showers, storage and programs such as job training courses, financial literacy, and mental health and substance abuse services. Daily services must be offered consistently Monday through Friday between the hours of 8 a.m. and 6 p.m. Emergency shelters are anticipated to coordinate, collaborate, and potentially contract with local human services providers to offer programming for daily services. The North Monroe Street and Downtown Tallahassee areas have also been identified as areas with high concentration of unsheltered homelessness based on calls and responses by HOST deputies and street outreach teams. Emergency shelters would coordinate with the CoC, HOST deputies, and street outreach teams to transport homeless individuals loitering in Downtown Tallahassee and North Monroe Street to shelters where daily and other life skills services are offered. Additional locations such as the Senior Center or the VA Office also offer important life skills training.  The emergency shelters would also be required to actively patrol and engage the homeless population along the Pensacola Street Corridor to reduce loitering, littering, and panhandling.

The County worked closely with the CoC and local homeless service providers to develop preliminary services that would maximize the County’s one-time Consistency Funding to most effectively connect homeless individuals and families to resources while reducing loitering, littering, and panhandling in the community.  Emergency shelters have the capacity to provide expanded services, but lack the funding.  Following Board ratification of actions taken at the Workshop, applications with detailed proposals would be accepted for approximately 2-3 weeks. The applications would be reviewed and awarded by the County in partnership with the CoC.  Subsequently, the County would enter into a contract with the awarded emergency homeless shelter to deliver the services that have been described. Services are expected begin later this summer upon contract execution.  To expedite the implementation of expanded services to reduce unsheltered homelessness and loitering, it is also recommended that the Board authorize the County Administrator to execute agreements, subject to legal review of the County Attorney.

An Oversight Committee comprised of County, CoC, and City staff would ensure daily services are implemented as contracted, and monitor the progress on the reduction of unsheltered homeless, solicitation, and loitering on the North Monroe Street, Downtown, and Pensacola Street Corridors.

7. Evaluate options for dedicated line-item funding for emergency homeless shelters. Recognizing that emergency shelters serve a critical role in meeting the consistent and increasing challenges of homelessness, it is recommended that the County evaluate dedicated, line-item funding for such services.  As detailed later in the item, the federal and state governments provide very limited funding for emergency shelter operations. At the local level, the County and City have historically funded emergency homeless shelters through Community Human Service Partnership (CHSP), which serves as the grant process for human services and funded as a two-year funding cycle. For the current two-year cycle (FY 2023 and FY 2024) the County and City is investing $2 million collectively in emergency homeless shelters for The Kearney Center, HOPE Community, and Capital City Youth Services shelters.  However, the emergency shelters often share that the current level of funding is not sufficient to address significant budget deficits at the shelters for staffing, case management, and other operations necessary to assist homeless individuals and families secure permanent housing. Therefore, the emergency shelter providers have requested that the County and City consider dedicated line-item funding for such programs consistent with the Federal Strategic Plan to Prevent and End Homelessness.

Options would be brought to the Board that evaluate the establishment of dedicated line-item as well as appropriate funding level for emergency homeless shelters for the Board’s consideration. Options for line-item funding would be examined in partnership with the City, CoC and other community partners such as the Children Services Council (CSC) of Leon County.  Funding of emergency shelters in other like-size communities would be evaluated.  As mentioned earlier, emergency homeless shelters are funded through the CHSP two-year competitive grant cycle for the funding of existing services and programs proposed by the agencies. Rather than providing grant funding, contracts for dedicated line-item funding with the emergency homeless shelters would establish overall objectives, programmatic criteria and performance measures set by the County and other funding partners. The options brought to the Board would also include proposals for greater oversight of the shelters by the County, City, and CoC to improve operations, financial conditions, and efficiencies to better serve the homeless population and meet community expectations.  Options would be brought back to the Board in fall 2023 for line-item funding in coordination with partners such as the City for the FY 2025 budget process which would align with the next two-year funding cycle for CHSP.

8. Continue to fund capacity building for nonprofits and faith-based organizations to expand homeless services through the Neighborhood Capacity Building Program.  For the past two years, the CoC has utilized County and City ARPA funding to provide training and technical support to build the capacity of the homeless service system. Training and technical support provided by the CoC has assisted nonprofit and faith-based organizations with establishing and implementing rent and utility assistance programs, and to secure supplies such as cots and blankets for cold night shelter services during the winter season. Utilizing approximately $27,600 of previously allocated ARPA funds, the CoC would work in concert with United Partners for Human Services (UPHS) to continue to provide 10-15 nonprofits and faith-based organizations the support to expand services that will reduce homelessness. 

Increase the stock of affordable housing for individuals and families experiencing homelessness:

9. Continue to fund Permanent Supportive Housing to connect homeless individuals and families to housing.  Permanent supportive housing (PSH) provides affordable housing assistance typically in the form of housing vouchers to individuals that have been chronically homeless (homeless for one year or more and has a disability). Consistent with the County’s Bold Goal to “support community partners to place 100 residents experiencing chronic homelessness in Permanent Supportive Housing”, the CoC would utilize approximately $110,400 in  previously allocated ARPA funds to house chronically homeless residents.  Thus far, approximately 51 formerly homeless individuals have been housed and it is anticipated an additional 15-20 chronically homeless individuals could be assisted within the next fiscal year. As a result, the County is on track to meet its five-year Bold Goal in 2024.
10. Consider a Policy to require affordable rental developments seeking County funding or bond authorization to set aside units for households exiting homelessness.  As described later in the item, over the past two years, the County has provided $4.3 million in direct funding to increase the number of affordable housing rental units and authorized approximately $148 million in bond financing for the development and redevelopment of affordable multifamily housing projects.  As a result, more than 1,000 affordable rental units will be developed over the next 12-18 months due to actions and investments made by the County.  The units will be reserved for low-income households that earn 60% or below the Area Median Income (AMI) (for example, $42,000 for a family of four).  However, individuals and families experiencing homelessness often earn income at 30% or below the AMI ($27,750 for a family of four).  The State currently requires affordable housing development seeking tax credit funding to set aside a portion of units for special populations such as farmworkers, youth exiting foster care, or the homelessness.  A similar policy would be brought back to the Board for its consideration to require affordable rental developments seeking County funding and bond authorization to set aside a portion of their units for the individuals and families exiting homelessness.

 

Conclusion

As mentioned earlier, homelessness is not unique to Leon County. In 2022, more than 500,000 individuals experienced homelessness across the United States. Recent PIT count data have indicated that similar to other communities, the Leon County has experienced an increase in homelessness. However, led by the CoC, and in partnership with the City and local homeless service providers, the County is well position to continue to adopt policies and initiatives and make investments based on nationally recognized strategies to end homelessness.

 

According to the Federal Strategic Plan developed by the United States Interagency Council on Homelessness, the fundamental solution to end homelessness is housing.  This aligns with the CoC’s Strategic Plan which the County has utilized to make investment that programs and services offered by local providers that will reduce homelessness in the community. The recommendations presented are consistent with strategies to increase housing and reduce homelessness overtime that include the following:

 

1. Enhance public engagement, awareness, and safety to better address homelessness.
2. Strengthen the capacity of homeless service providers to reduce homelessness and connect clients to housing.
3. Increase the stock of affordable housing for individuals and families experiencing homelessness.

 

Over the past three years, the County has invested more than $32.5 million to prevent and reduce homelessness. Collectively, the proposed 10 recommendations represent more than $1 million in funding that would be allocated over the next year; including $585,000 in remaining ARPA funding previously allocated to the CoC and Sheriff’s Office as well as $500,021 in new funding to reduce unsheltered homelessness and loitering in the community through expanded daily service to the homeless population.

 

With the CoC as the lead coordinating entity, the County, the City, HOST deputies, local homeless service providers, and local non-profit agencies will continue to work on the implementation of the recommendations.  Should the Board approve the proposed recommendations, semi-annual status reports would be provided over the next 24 months with updates on the implementation of the recommendations.  Additionally, updates would be incorporated into future items on the adoption of proposed ordinances and policies, CHSP, affordable housing, and the County’s Strategic Plan.

 

Options:

1. Accept the report on homelessness in Leon County.
2. In partnership with the City of Tallahassee, amend the American Rescue Plan Act (ARPA) funding Agreement with Big Bend Continuum of Care to extend the term and amend the exhibits in the amount of $345,000 in previously allocated County ARPA funding to the organization, and authorize the County Administrator to execute the Agreement, subject to legal review of the County Attorney for the following:

• The establishment of the Big Bend Continuum of Care Community Engagement Liaison position to regularly engage and educate the community and key stakeholders such as faith-based organizations on homelessness.
• Continue funding of the Street Outreach Program to engage unsheltered homeless individuals and families.
• Continue funding of Permanent Supportive Housing to place homeless individuals and families in housing.
• Continue funding to provide training and technical support to nonprofit and faith-based organizations to expand the local homeless services through of the Neighborhood Based Partner Capacity Building.

3. Continue to support the Sheriff’s HOST Deputies with County ARPA funding previously allocated to the Sheriff’s Office for the positions.
4. Direct staff to develop a countywide ordinance to promote safety, making it unlawful to hold a sign or display advertisement in a median of a road for any reason.
5. Adopt a community campaign to reduce panhandling that includes the establishment of signs developed in partnership with the City of Tallahassee and Big Bend Continuum of Care, to be placed at medians on select County roads.
6. Allocate $500,021 in Federal Local Assistance and Tribal Consistency Funding to providers of emergency homeless shelter services that reduce unsheltered homelessness and loitering in the community, and authorize the County Administrator to execute the agreements, subject to legal review by the County Attorney.
7. Direct staff to bring back an agenda item to explore options for long-term and dedicated line-item funding for emergency homeless shelters for FY 2025.
8. Direct staff to develop a draft policy to require affordable rental developments seeking County funding or bond authorization to set aside a portion of their units for individuals or families exiting homelessness.

9.   Board direction.

Recommendation:

Options #1 through #8

Attachments:

1. 2021-2025 CoC Homelessness Assistance Strategic Plan
2. ALL IN: The Federal Strategic Plan to Prevent and End Homelessness
3. Greater Tallahassee Chamber of Commerce Statement and Research Results
4. Downtown Improvement Authority Survey Results
5. Panhandling Traffic Safety Sign