ACKNOWLEDGEMENTS

by Ann Elizabeth Montgomery

The Applicability of
Housing First Models to Homeless
Persons with Serious Mental Illness
U.S. Department of Housing and Urban Development
Office of Policy Development and Research

The Applicability of
Housing First Models to Homeless
Persons with Serious Mental Illness
final report
Prepared for:
U.S. Department of Housing and Urban Development

Office of Policy Development and Research

Prepared by:
Carol L. Pearson, Ph.D., Walter R. McDonald & Associates, Inc.
Gretchen Locke, Abt Associates Inc.
Ann Elizabeth Montgomery, Walter R. McDonald & Associates, Inc.
Larry Buron, Ph.D., Abt Associates Inc.
Walter R. McDonald & Associates, Inc., Rockville, MD
Abt Associates Inc., Cambridge, MA
july 2007

ACKNOWLEDGMENTS

Many individuals have assisted us on this project. We would especially like to thank the
following:

• The formerly-homeless men and women who agreed to participate in the study;

• The staff from the U.S. Department of Housing and Urban Development (HUD) and program
administrators who nominated potential sites;

• The staff of the Housing First programs, whose time, energy, and knowledge, as well as their
diligence in providing monthly data, made this study possible;

• We would particularly like to thank our primary contacts at each of the programs:

Greg Jensen and Daniel Malone
Downtown Emergency Service Center (DESC), Seattle, Washington

Pat Precin and Sam Tsemberis
Pathways to Housing, New York City, New York

Pat Bathurst, Gary Hubbard, and Roxanne Rosemire
Reaching Out and Engaging to Achieve Consumer Health (REACH), San Diego,
California; and

• Paul Dornan, our Government Technical Representative from HUD, whose commitment to
this study and the report added immeasurable value. Other HUD staff members who
provided helpful comments throughout the study include Marge Martin, Marina Myhre, and
Kevin Neary from the Office of Policy Development and Research, and Mark Johnston from
the Office of Special Needs Assistance Programs.

In addition, we would like to acknowledge Anja Maguire of Walter R. McDonald & Associates,
Inc., who provided editorial assistance, and Jessica Bonjorni, Naomi Michlin, and Jody Schmidt
Muehlegger of Abt Associates Inc., who assisted in data collection, analysis, and reporting.

We appreciate the significant contributions that the above individuals made to carrying out the
research and writing of this report. They are not responsible for any remaining errors or
omissions.

The findings and views herein are those of the authors and do not necessarily reflect the views or
policies of the U.S. Department of Housing and Urban Development.

Foreword

Understanding homelessness is a necessary step toward ending it, especially for those
persons living with a chronic condition such as mental illness, an addiction, or physical
disability. Ending chronic homelessness remains a national goal for President Bush, the
Department of Housing and Urban Development (HUD), and many within the homeless
advocacy community.

In recent years, an approach known as Housing First has emerged as one model for
serving chronically homeless people. HUD began this study as a first step in describing how
Housing First programs actually work and what sorts of short term outcomes are realized by the
people they serve.

This report, The Applicability of Housing First Models to Homeless Persons with Serious
Mental Illness, provides a basic description of several programs that represent a Housing First
model. The report should help clarify the issues and inform the policy discussion about how best
to address the most vulnerable in American society.

Darlene F. Williams
Assistant Secretary for
Policy Development and Research

Preface

This report presents the findings from an exploratory study of the Housing First approach
of providing permanent supportive housing to single, homeless adults. Those served have
mental illness and co-occurring substance-related disorders, and frequently come directly (or
nearly directly) off the streets. Congress and the U.S. Department of Housing and Urban
Development (HUD) have encouraged the development of permanent supportive housing for
homeless people since the inception of the McKinney-Vento Act in 1987. In recent years,
increased public attention has been focused on the hardest-to-serve, chronically homeless
population, a substantial number of whom are mentally ill. Because it addresses this population
and its needs, the Housing First approach has emerged as a favored policy response among many
in the advocacy and practitioner communities.

Each of the three Housing First programs studied here use a low demand model to
respond to substance abuse among their chronically homeless target populations.
1
What is low
demand? This report defines it in this way:

The [low demand] approach addresses the harms caused by risk-taking behavior without
forcing clients to eliminate the behavior altogether (Marlatt and Tapert, 1993). For example,
abstinence is a form of [low demand] for those who want to quit using drugs, but for those
who are not ready, case managers must start with interventions that can help a substance user
improve his or her life. Interventions might include reminding the client to eat, drink water,
sleep, pay rent and other bills before spending money on drugs, and to educate users about
the negative effects of drugs and encourage them to use less frequently, if not quit using
entirely.

One recent review of the literature indicates that the fundamental assumption of low
demand “is that substance use falls along a continuum from abstinence to problematic use or
abuse. While abstinence and a substance-free life represent long-term goals, any immediate step
in that direction, such as reducing the quantity and/or frequency of use, should be viewed
positively and reinforced.” (Connors et al. (2001)

Clearly, any public program or policy that countenances the use of illegal drugs under
any circumstance runs the risk of violating other Federal, state and local laws and policies. The
Department then must weigh competing social values to arrive at a policy relating to low demand
approaches.
2
This is not the place to set that policy, but we do believe that clarifying what is at

1
Throughout this report and this preface we shall use the term “low demand” where others might use “harm
reduction”. As Zerger (2002) observes, “…[P]olitically, the harm reduction approach has been aligned with the
contentious debate of drug legalization, resulting in rhetoric which has implications for the clarity of any pursuant
discussion on which drug policies might actually work.” In this regard, it is difficult, if not impossible, for the
government to support a set of policies, some of which are objectionable on legal grounds, that have been grouped
under the category of “harm reduction”. Under the circumstances, it is necessary to use the less politically and
emotionally freighted term “low demand”.

2
Recent studies document that keeping homeless people housed benefits society quite apart from the person directly
assisted. For example, Kidder et al. (upcoming) find that keeping someone housed reduces the incidence of risky
sexual behavior, thereby reducing significantly the risk of HIV/AIDS transmission. Graham et al. (upcoming)
conclude that keeping an ex-offender housed after a stay in prison or jail reduces substantially the likelihood that

v

stake will further the debate and ultimately work to reconcile what might be preferred practice by
some providers and public law.

Certainly current research challenges the presumption that substance abusers can’t and
won’t change. Beyond that, though, the reasons why people change addictive behaviors are still
not well understood. As one close observer writes, “The simplistic account that people change
because they receive treatment is wanting in many ways. Many people who recover do so
without formal treatment. Even relatively brief interventions seem to trigger changes, and the
dose of treatment delivered is surprisingly unrelated to outcomes. Client compliance with many
different approaches, including placebo medication, has been linked to better outcomes.” [Miller
(1998)] One of the most prominent theories outlines a series of phases through which addicts
proceed. What is clear, though, is that the rehabilitative process is neither unidirectional nor
regular. For the vast majority of those dependent on drugs and alcohol, in fact, the process of
choice and change is characterized by fits and starts, occasional relapse and, for some, chronic
failure. Substance abuse policies, to be effective, must accommodate these dynamics. Clearly
existing research, divergent as it is, does not recommend a single program or policy.

On the other side are the realities of chronic homelessness. We know, for example, that a
significant portion of those living on the streets use drugs and alcohol; frequently, they suffer
from mental illness as well. We also understand that for some part of that number getting them
off the street will require at least temporary accommodation to drug and alcohol use in the
facilities in which they are housed. On the other hand, the statutory purposes of the McKinney
Vento Act homeless programs are to move homeless people toward stable housing and the
greatest independence of which they are able. Persistent dependence on drugs and alcohol,
whatever it is, is not a manifestation of independence.

The McKinney-Vento Act provides for a variety of HUD housing options to help
stabilize the lives of homeless persons. These include emergency, transitional and permanent
supportive housing. The law further allows for tenant-based and project-based assistance. A
common tie to all these housing options is the principle that HUD’s homeless housing programs
are intended to help persons through the provision of services to address their special needs in
order to become more independent. For instance, in describing the purpose of the Supportive
Housing Program (SHP), the McKinney Act states that the program is to “promote the provision
of supportive housing to homeless persons to enable them to live as independently as possible.”
(Title IV, C Section 421; emphasis added.) This emphasis on assisting clients with housing and
services in improving their lives is also highlighted in the Act’s provisions for the Emergency
Shelter Grants Program. By law, this program requires that applicants assist homeless
individuals to obtain “appropriate supportive services, including permanent housing, medical
and mental health treatment, counseling, supervision, and other services essential for achieving
independent living….” (Title IV, B Section 415 (c) (3) (A)) (emphasis added). These provisions
are mirrored in the Code of Federal Regulations. HUD further reinforces this principle in its
program grant application and grantee performance reports.

he/she will return to a criminal justice facility. Culhane, Metraux and Hadley (2002) make a compelling case that
providing appropriate housing and services is cost-neutral when the alternative is the street and all the public costs
that entails.

vi

With this focus on helping persons become more independent—emphasized in the law,
regulation, application, and performance reporting—grantees are to assist clients in achieving
this goal and to provide environments in which this progress can take place. By law, HUD’s
permanent supportive housing programs for homeless persons are designed to serve persons who
are disabled, including those who are currently seriously mentally ill and/or who have chronic
problems with alcohol, drugs, or both. For example, the fact that Shelter Plus Care statute
specifies substance and alcohol abuse services as eligible supportive services for matching
purposes presumes that some clients will be actively using drugs and/or alcohol at program
entry, either before or during occupancy of the Shelter Plus Care housing.

Given these conditions that exist at the time of entry into housing, providers need to work
individually with clients to address and resolve these issues. The law (SHP law) requires that the
applicant “provide such residential supervision as the Secretary determines is necessary to
facilitate the adequate provision of supportive services to residents and users of the project.”
Accordingly, HUD requires in its grant agreement that providers cannot knowingly allow any
illegal activities, including illicit drug use, to be conducted in the project. This provision was
added expressly to maximize the likelihood that clients struggling to overcome substance abuse
addictions would have the most supportive environment possible in which to succeed in
rehabilitating their lives. Many providers also prohibit the use of any alcohol while in a HUD
homeless project and find this to be a necessary and effective approach for rehabilitation.
3

It is important in this connection to distinguish Departmental policy related to public and
assisted housing from that for McKinney-Vento Act homeless programs. Homeless people
affected by substance abuse are a target population for the Department’s homeless programs.
They are not for the Public Housing or Housing Choice Voucher programs. When Congress sets
forth a target population and the Administration subsequently proposes to end chronic
homelessness, there is an underlying presumption that a not inconsiderable part of the target
population will be using those drugs/alcohol at entry and perhaps for some time thereafter.
Similarly, Congress has instituted such policy initiatives as safe havens as intentionally “low
demand” alternatives to more orthodox approaches. [Note that safe haven is probably the closest
statutorily-based conception to the Housing First concept]. The presumption is that such low
demand programs will “do anything it takes” to engage chronically homeless people and then
maintain them in housing. And, “doing anything it takes” presumes acceptance that some of
those who are agreeing to come in off the street have not agreed or are not able to stop an
existing addiction upon entering the program.

3
Illegal drug use is no guarantor of eviction even when that is the housing provider’s intent. For example, the
Corporation for Supportive Housing, in its Between the Lines: A Question and Answer Guide on Legal Issues in
Supportive Housing, comments, “The use of illegal drugs should generally be sufficient grounds for eviction;
however, it is advisable that leases contain a provision prohibiting the use of illegal drugs so the eviction is based on
a lease violation. Most jurisdictions allow eviction for criminal activity, including illegal drug use. Housing
providers should be prepared for the resident to assert the need for a reasonable accommodation in any eviction.
Although it is difficult to think of what the reasonable accommodation would be in the instance where the housing
provider has clear evidence of illegal drug use, providers should be prepared for creative defenses asserted by
tenants who are being evicted for drug use.

Housing providers may have difficulty obtaining convincing evidence of the tenant’s drug use. Rarely will a tenant
use drugs in front of staff and other tenants are often reluctant to testify against fellow residents. Evidence based on
behavior may not be convincing or explained away by the tenant.”

vii

Even here, though, the statute specifically prohibits the use of illegal drugs and alcohol in
a HUD-assisted safe haven: “The Secretary may not provide assistance under this [Safe haven]
subtitle for any safe haven program unless the applicant agrees to prohibit the use of illegal drugs
and alcohol in the facility.”
4

These instances constitute a contrast to HUD-supported public and assisted housing
where the target population is low income families with no presumption of disability and where
the multifamily setting and, in the case of assisted housing, the future of the program is bound up
with the ongoing satisfaction of landlords. For example, the Housing Choice Voucher rules
permit an owner to terminate tenancy for criminal activity or alcohol abuse by any household
member or guest. Such activity includes: Criminal activity which threatens the health, safety or
peaceful enjoyment of the premises by other tenants or by people residing in the immediate
vicinity; or drug-related criminal activity on or near the premises. Likewise, if, among other
reasons, any member of the family commits drug-related criminal or violent criminal activity,
PHAs may deny or terminate for this reason if the preponderance of evidence indicates a family
member engaged in the activity whether or not the member was arrested or convicted. If any
family member is illegally using, or possessing a controlled substance for personal use within
one year before the date the PHA provides the notice of termination, the PHA may terminate
assistance.

4
The results of a recent survey of safe haven providers illustrate the paradoxes that pervade substance use in safe
havens specifically and low demand programs generally. Based on returned surveys from 79 of 118 identified safe
havens, the Ward Family Foundation found that:

• 86 percent of all surveyed providers received HUD funding for their safe haven programs;

• 79 percent of the responding providers indicate that they would accept residents who were active substance
abusers;

• 47 percent of the providers reported low demand-oriented alcohol and drug treatment services were
available on-site, and another 34 percent reported that, although they did not have such services on-site,
they were committed to support them for their clients off-site;

• With all this in mind, 100 percent of the providers report that use of illegal substances on the safe haven
premises is prohibited; 95 percent ban use of alcohol in the safe haven;

• 77 percent of respondents reported that they would terminate any client if they used drugs on-site; and 62
percent indicated that they would terminate any safe haven resident for use of alcohol on-site.

What appears evident from these numbers is that safe haven providers are faced daily with the task of reconciling
house rules and expectations with the realities of the population they are serving and provider commitment, to the
best they are able, to keep their clients from returning to the streets. In In from the Cold: A Toolkit for Creating
Safe Havens for Homeless People on the Streets, a joint technical assistance document sponsored by HUD and HHS,
the authors advise: “Safe Havens need to consider whether they will be a ‘dry’, ‘damp’, or ‘wet’ facility. While
Save Havens do not assist or support residents in using alcohol or illegal drugs, some may have chosen to work with
their residents toward a better understanding of their substance use and toward abstinence of reduced use and
dependence.”

viii

We cannot deny the realities of homeless people abusing substances. The great majority
of them, when sheltered, are going to be living in multi-unit buildings in which their ongoing
substance use will affect others. Persistent drug use, for example, will offer an ongoing
temptation to others who are themselves at various phases of change or recovery. Even if
homeless clients do not sell illegal substances themselves, their use ensures that they are caught
up in the crime and violence that accompanies drug and alcohol abuse. For many people,
substance abuse brings changes in behavior (belligerence, noise, bizarre behavior) that
undermine social/therapeutic health. Moreover, ongoing use of alcohol and drugs leads to
progressive debilitation and adversely affects the capacity of those so afflicted to make good
decisions. Acquiescence in active substance use does have consequences. On the other hand, as
this study documents, some Housing First programs can ameliorate some of the worst social
effects of persistent drug abuse through close and proactive contact with the client and steady
commitment on the part of an interdisciplinary team to meet the needs of landlords as well as
clients. On the other hand, there are certainly not enough cases in this research effort to
conclude persuasively that the staff-intensity evident in these examples is widely replicable.

To the extent that projects using low demand acknowledge these social realities, then low
demand may well comprise a feature of a viable response to chronic homelessness. However,
the Department cannot in the name of low demand condone or acquiescence in the continued,
unabated use of harmful substances or accept the ultimate expendability of people who do not
recover.

ix

x

TABLE OF CONTENTS

EXECUTIVE SUMMARY xv

CHAPTER 1: INTRODUCTION AND BACKGROUND 1
What is the Housing First Approach? 2
How and When Did the Housing First Approach Come About? 2
Why is Research Needed? 3
What are the Goals of the Study? 5
Overview of the Methodology 6
Report Organization 8
CHAPTER 2: CANVASS OF HOUSING FIRST PROGRAMS 9
Housing First Programs 10
Summaries of Programs Not Selected for Study 15
Conclusions 16
CHAPTER 3: KEY FEATURES OF HOUSING FIRST STUDY SITES 19
Rationale for Site Selection 19
The Downtown Emergency Service Center (DESC), Seattle, Washington 20
Pathways to Housing, New York City, New York 23
Reaching Out and Engaging to Achieve Consumer Health (REACH),
San Diego, California
25
Cross-Site Analysis of Housing First Features 29
Conclusions 40
CHAPTER 4: CHARACTERISTICS OF HOUSING FIRST CLIENTS 43
Baseline Differences by Housing First Program 43
Baseline Differences by Prior Living Situation 54
Summary of Baseline Characteristics of Study Clients 59
CHAPTER 5: HOUSING TENURE 61
Stayers, Intermittent Stayers, and Leavers 61
Demographics and Baseline Characteristics 69
Outcomes 74
Conclusions 80
CHAPTER 6: OUTCOMES 81
Change in Impairment Related to Psychiatric Symptoms 82
Psychiatric Medication Management 85
Change in Impairment Related to Substance Use 87
Change in Impairment Related to Co-Occurring Disorders 89
Change in Income and Money Management 90
Conclusions 95

xi

CHAPTER 7: SUMMARY AND IMPLICATIONS 97
What Makes Housing First Work 98
Policy Implications for HUD 102
Recommendations for Future Research 104
Conclusions 105
Appendix A: Methodology 107
Appendix B: Canvass Tables 135
Appendix C: The Downtown Emergency Service Center (DESC), Seattle,
Washington
141
Appendix D: Pathways To Housing, New York City, New York 153
Appendix E: Reaching Out And Engaging To Achieve Consumer Health
(REACH), San Diego, California
163
Appendix F: Glossary 177
Appendix G: References 179

xii

EXHIBITS 

Exhibit 3–1. Program Features 30
Exhibit 3–2. Average Service Contacts per Client per Month, by Program 36
Exhibit 4–1. Client Characteristics at Enrollment, by Program 44
Exhibit 4–2. Client Age at Enrollment, by Program 45
Exhibit 4–3. Client Race and Ethnicity, by Program 45
Exhibit 4–4. Client Background at Enrollment, by Program 46
Exhibit 4–5. Client History of Arrest and Incarceration, by Program 47
Exhibit 4–6. Client Monthly Income at Baseline, by Program 47
Exhibit 4–7. Sources of Income and Benefits at Enrollment, by Program 48
Exhibit 4–8. Types of Axis I Diagnoses at Enrollment, by Program 49
Exhibit 4–9. Psychiatric Symptoms and Impairments at Enrollment, by Program 50
Exhibit 4–10. Type of Substance Abuse Prior to Enrollment Across Programs 51
Exhibit 4–11. History of Substance Abuse and Treatment, by Program 51
Exhibit 4–12. Substance Use and Impairment at Enrollment, by Program 52
Exhibit 4–13. Co-Occurring Disorders, by Program 52
Exhibit 4–14. Client Living Situation Immediately Prior to Enrollment, by
Program
53
Exhibit 4–15. Client Characteristics, by Chronic Homelessness Status 54
Exhibit 4–16. Client Age at Enrollment, by Prior Living Situation 55
Exhibit 4–17. Client Background at Enrollment, by Prior Living Situation 56
Exhibit 4–18. Axis I Diagnoses at Enrollment, by Prior Living Situation 56
Exhibit 4–19. Psychiatric Symptoms and Impairment at Enrollment, by Prior
Living Situation
57
Exhibit 4–20. History of Substance Abuse and Treatment, by Prior Living
Situation
57
Exhibit 4–21. Substance Abuse and Impairment at Enrollment, by Prior Living
Situation
58
Exhibit 4–22. Co-Occurring Disorders, by Prior Living Situation 59
Exhibit 5–1. Level of Housing Stability, by Program 63
Exhibit 5–2. Duration in Other Living Environments, by Level of Housing
Stability
64
Exhibit 5–3. Frequency of Other Living Environments, by Level of Housing
Stability
64
Exhibit 5–4. Nights Spent in Other Living Environments, by Level of Housing
Stability
66
Exhibit 5–5. Movement within the Housing First Program during First Year of
Residence, by Level of Housing Stability
67
Exhibit 5–6. Frequency of Housing Problems, by Level of Housing Stability 68
Exhibit 5–7. Demographic Characteristics, by Level of Housing Stability 70
Exhibit 5–8. Client Benefits and Monthly Income at Baseline, by Level of
Housing Stability
71
Exhibit 5–9. Prior Living Situation, by Level of Housing Stability 71
Exhibit 5–10. Co-Occurring Disorders, by Level of Housing Stability 72
Exhibit 5–11. Level of Impairment Related to Psychiatric Symptoms, Drug Use,
and Alcohol Use, by Level of Housing Stability
73

xiii

Exhibit 5–12. Change in Level of Impairment Related to Psychiatric Symptoms,
by Level of Housing Stability
74
Exhibit 5–13. Change in Level of Impairment Related to Substance Use, by Level
of Housing Stability
75
Exhibit 5–14. Change in Representative Payee Status and Monthly Income, by
Level of Housing Stability
76
Exhibit 5–15. Reasons for Leaving Housing First Programs 77
Exhibit 5–16. Time of Program Departure for Leavers, by Program 77
Exhibit 6–1. Change in Level of Impairment Related to Psychiatric Symptoms
Between Baseline and Month 12, by Program
83
Exhibit 6–2. Change in Level of Impairment Related to Psychiatric Symptoms 83
Exhibit 6–3. Level of Impairment Related to Psychiatric Symptoms, by Month 84
Exhibit 6–4. Clients Taking Psychiatric Medications at Baseline, by Program 85
Exhibit 6–5. Frequency with Which Clients Took Psychiatric Medications in
Months 1 and 12
86
Exhibit 6–6. Independence of Medication Management in Month 1, by Program 87
Exhibit 6–7. Change in Independence of Medication Management Between
Month 1 and Month 12, by Program
87
Exhibit 6–8. Change in Level of Impairment Related to Substance Use Between
Baseline and Month 12, by Program
88
Exhibit 6–9. Level of Impairment Related to Drug or Alcohol Use, by Month 89
Exhibit 6–10. Level of Impairment Related to Psychiatric Symptoms at Baseline
and Month 12, by Substance Use
90
Exhibit 6–11. Total Monthly Income at Baseline and Month 12, by Program 91
Exhibit 6–12. Average Monthly Income at Baseline and Month 12, by Program 91
Exhibit 6–13. Representative Payee Status at Baseline and Month 12, by Program 93
Exhibit 6–14. Money Management Independence at Months 1 and 12, by Program 93
Exhibit 6–15. Distribution of Money Management Independence at Months
1 and 12
94
Exhibit 6–16. Money Management Ability at Months 1 and 12, by Program 95
Exhibit A–1. Enrollment of Study Sample 112
Exhibit A–2. Client Tenure in Housing First Programs 114
Exhibit A–3. Client Participation in Focus Groups 114
Exhibit A–4. Housing First Informed Consent Form 116
Exhibit A–5. Baseline Data Collection Instrument 120
Exhibit A–6. Monthly Data Collection Instrument 127
Exhibit A–7. Focus Group Discussion Guide 132

TABLES
Table B–1. Housing First Programs 136
Table B–2. Possible Housing First Programs 138

xiv

EXECUTIVE SUMMARY

This report presents the findings from an exploratory study of the Housing First approach of
providing permanent supportive housing to single, homeless adults with mental illness and co-
occurring substance-related disorders. In recent years, Congress and the leadership of the U.S.
Department of Housing and Urban Development (HUD) have encouraged the development of
permanent housing for homeless people. Concurrently, there has been a shift toward committing
a greater proportion of HUD McKinney-Vento Act funds toward housing as opposed to
supportive services and an increase in attention toward the hardest-to-serve, chronically
homeless population, a substantial number of whom are mentally ill. Because it addresses this
population and its needs, the Housing First approach is currently experiencing increased
attention as a method of serving this population consistent with the above-stated goals.

WHAT IS THE HOUSING FIRST APPROACH?

Housing First programs may be constructed in a number of ways, but share the following
features:

• The direct, or nearly direct, placement of targeted homeless people into permanent housing.
Even though the initial housing placement may be transitional in nature, the program
commits to ensuring that the client is housed permanently.

• While supportive services are to be offered and made readily available, the program does not
require participation in these services to remain in the housing.

• The use of assertive outreach to engage and offer housing to homeless people with mental
illness who are reluctant to enter shelters or engage in services. Once in housing, a low
demand approach accommodates client alcohol and substance use, so that “relapse” will not
result in the client losing housing (Marlatt and Tapert, 1993).
5

• The continued effort to provide case management and to hold housing for clients, even if
they leave their program housing for short periods.

The first and most well known Housing First model is Pathways to Housing, located in New
York City. Established in 1992, Pathways to Housing offers individuals, who are homeless and
have psychiatric or substance-related disorders, direct access to permanent, independent
apartments without requiring participation in psychiatric treatment or sobriety as a precondition

5
The low demand approach addresses the harms caused by risk-taking behavior without forcing clients to eliminate
the behavior altogether (Marlatt and Tapert, 1993). For example, abstinence is a form of low demand for those who
want to quit using drugs, but for those who are not ready, case managers must start with interventions that can help a
substance user improve his or her life. Interventions might include reminding the client to eat, drink water, sleep,
pay rent and other bills before spending money on drugs, and to educate users about the negative effects of drugs
and encourage them to use less frequently, if not quit using entirely.

xv

Executive Summary
for entering housing (Tsemberis, Gulcur, and Nakae, 2004). Housing and treatment services are
separated. Clients rent apartments—with the lease held by Pathways to Housing—from landlords
who do not have a direct relationship with the treatment agency. The program uses a low
demand approach that does not prohibit substance use as a condition for obtaining or retaining
housing. The program requires that clients pay 30 percent of their income for rent and
participate in two home visits by their case manager each month. Following housing placement,
interdisciplinary Assertive Community Treatment (ACT) teams are available 24 hours a day, 7
days a week to provide treatment, support, and other needed services to the client in a
neighborhood office or in the client’s home.
6

Previous evaluations of the Housing First approach have concentrated on Pathways to Housing
and have been conducted by the originator and director of the program. Independent evaluations,
of which the present study is one of the first, are appropriate to assess both Pathways to
Housing’s program and other ways to implement the Housing First approach.

This exploratory study identifies the existing permutations of the Housing First approach, which
appear to respond effectively to the needs of homeless people with serious mental illness. It
examines and compares three programs that are implementing the Housing First approach in
slightly different ways and describes the characteristics of programs that seem to be influential in
housing tenure, stability, and other positive outcomes for clients.

OVERVIEW OF THE METHODOLOGY

HUD contracted in 2003 with Walter R. McDonald & Associates, Inc. (WRMA), and its partner
Abt Associates Inc., to conduct this study. The goals of the study were to provide an overview
of Housing First programs in the United States that serve individuals with a serious mental
illness, as well as a detailed analysis of the program characteristics and client outcomes at three
of these programs. The overall approach to this study included the following research activities:

• Conduct a telephone canvass of Housing First programs in the United States that serve
individuals with a serious mental illness and develop criteria to select two study sites, in
addition to Pathways to Housing, for in-depth analysis of program characteristics and client
outcomes;

• Explore program implementation at the three selected Housing First programs by conducting
baseline and followup site visits, interviewing program staff, and gathering detailed
information about the operation of the program; and

6
The ACT approach at Pathways to Housing is modified from the original ACT teams developed in Madison,
Wisconsin, by Stein and Test (1980). The goals of the ACT teams are to enhance the client’s community
adjustment, decrease time spent in institutions, and prevent the development of a chronic “patient” role. Key
features include small caseloads with low staff-to-client ratios, neighborhood proximity for client monitoring, and
easy access for needed services or assistance with activities of daily living and community integration.

xvi

Executive Summary
• Assess program outcomes in the three study sites by selecting and tracking 25 new or
recently enrolled, formerly homeless study participants over a 12-month period at each site,
engaging local researchers to interview the participants who left the program within
12 months of placement, and conducting focus groups with participants.
7

HOUSING FIRST STUDY SITES

To identify variations in the Housing First approach, the study team conducted a telephone
canvass to identify existing Housing First programs and collect basic information on their
program features. Through this process, the study team contacted every agency that the study
team, HUD staff, and advocates identified as operating a Housing First program for individuals
with serious mental illness.

The canvass provided a wealth of information about the current status of Housing First programs
across the country (as of late 2003). The study team conducted canvass discussions with
33 programs—nine incorporated the key features of the Housing First model and 14 incorporated
many of the key features, but did not target single unaccompanied adults with a serious mental
illness. The study team did not consider the remaining 10 programs to be examples of a Housing
First program because clients were required to participate in treatment prior to placement, or
because the program did not primarily serve homeless people.

The nine programs (including Pathways to Housing) that were found to incorporate the key
features of the Housing First model were:

• Community Housing Network, Columbus, Ohio;
• Direct Access to Housing, San Francisco, California;
• Downtown Emergency Service Center (DESC), Seattle, Washington;
• Horizon House, Philadelphia, Pennsylvania;
• Lamp Community, Los Angeles, California;
• Pathways to Housing, New York City, New York;
• Reaching Out and Engaging to Achieve Consumer Health (REACH), San Diego County
AB 2034, San Diego, California;
• Sunshine Terrace, Columbus, Ohio; and
• The Village, Los Angeles County AB 2034, Long Beach, California.

An important purpose of the nationwide canvass was to identify and recommend two study sites,
in addition to Pathways to Housing, which met the criteria for the study. In addition to choosing
study sites that incorporated the key features of the Housing First approach, the programs also
needed to be large enough to meet the study’s enrollment target of 25 clients within the
12-month period. The study team also excluded programs that were involved in another research

7
Study participants were not randomly selected. Instead, the study team instructed the three study sites to work
backwards, beginning with the most recently enrolled clients, to select the first 25 homeless clients who entered the
Housing First program and were unaccompanied (not part of a homeless family), seriously mentally ill, and willing
to participate in the study. For further information on study enrollment, see Appendix A.

xvii

Executive Summary
effort underway at the same time as this study. This was done to avoid over-burdening programs
with two different data collection efforts.

The two programs most suitable for further study—DESC and REACH—had the most key
features of the Housing First approach, the best comparability to the Pathways to Housing
program model, and commensurability with the other study requirements. These three sites are
briefly described below.

Downtown Emergency Service Center (DESC), Seattle, Washington
DESC started a permanent supportive housing program with a Housing First approach in May
1994. DESC serves more than 300 clients at one time and places three to six new clients each
month. Approximately 30 percent of clients come directly from the streets, with the remainder
coming from emergency shelters. The Annual Progress Report submitted to HUD in 2003
indicated that almost all of the new clients who entered DESC housing had a mental illness and
the majority had a substance-related disorder.
8
Of the 25 clients tracked for this study, 84
percent (n = 21) met the HUD criteria for chronic homelessness.
9

The majority of DESC clients enter the Housing First program as a result of engagement by
DESC’s outreach workers. A worker may offer a client housing at any point during the
engagement process. Because vacancies are rare, staff maintain a waiting list with the most
impaired candidates (that is, those at greatest risk due to their mental illness as well as other
vulnerabilities such as substance abuse or physical health problems) receiving the highest
priority for housing. Applicants for housing do not have to agree to participate in services or
maintain sobriety as a condition of receiving or retaining their housing.

DESC maintains 306 units of permanent supportive housing in four buildings that it owns or
controls. Each building serves slightly different populations and has 24-hour, on-site staff
trained in property management and supportive services. Kerner-Scott House is a 25-unit safe
haven for seriously mentally ill people referred through DESC’s homeless outreach program. It
serves the most impaired and least engaged of DESC’s clients. The other three buildings are
single room occupancy (SRO) hotels. The Morrison Hotel has 180 residential units and a 203-
bed emergency shelter operated by DESC. The Lyon Building has 64 units and serves people
with HIV/AIDS, mental illness, or a substance-related disorder. The Union Hotel is a 52-unit
SRO building serving seriously mentally ill clients referred from Kerner-Scott House or DESC’s
outreach team. All of the buildings provide private apartments with kitchenettes and baths, on-
site meals, staff offices, and community rooms. Units can be held for 90 days for residents who
leave, but are expected to return. If the client returns after 90 days, DESC will place the client in
another unit as quickly as possible.

8
Grantees operating HUD competitive homeless assistance programs submit annual reports that provide information
necessary to assess project performance, including participant entry and exit information.
9
Chronic homelessness is defined as an unaccompanied homeless individual with a disabling condition who has
either been continuously homeless for one year or more or has had at least four episodes of homelessness during the
past 3 years. To be considered chronically homeless, a person must have been sleeping in a place not meant for
human habitation (e.g., living on the streets) or in an emergency shelter during that time. An episode is a separate,
distinct, and sustained stay on the streets or in an emergency homeless shelter.

xviii

Executive Summary
DESC case managers each carry a caseload of 34 people. DESC’s service model emphasizes
working with clients where they live, as well as coordinating between housing-based clinical
service coordinators and the community case managers associated with DESC’s licensed mental
health and substance abuse treatment programs. Service plans are developed collaboratively by
the housing-based staff, the community case manager, and the client.

Pathways to Housing, New York City, New York
Established in 1993, Pathways to Housing serves 450 individuals with histories of homelessness,
severe psychiatric disabilities, and co-occurring substance-related disorders. Referral sources
include several of New York City’s outreach teams, drop-in centers, jails, hospitals, and shelters.
Averaging three to five new enrollments per month, institutional discharges accounted for 50 of
Pathways to Housing’s new enrollments over the past 2 years and psychiatric discharges
constitute 42 percent (n = 11) of the current study sample.
10
Despite the large proportion of
psychiatric discharges, Pathways to Housing staff reported that most of the clients who
participated in this study met the joint federal definition of chronically homeless and 92 percent
(n = 24) had met the definition at some point in the last 3 years.
11

Upon enrollment, the client may reside in a shelter or be placed in a hotel or at the Young Men's
Christian Association (YMCA) while working with the Housing Department at Pathways to
Housing to secure an apartment. Because Pathways to Housing was at full enrollment at the time
of the study, referrals depended on the referral source, availability of a housing subsidy, and
ACT team capacity. Clients are not required to be drug or alcohol free, acknowledge they have a
mental illness, or participate in treatment programs. Clients must agree to two case manager
visits per month and pay 30 percent of their income—usually Supplemental Security Income
(SSI)—for rent. Most clients agree to allow Pathways to Housing to act as representative payee
for this purpose, but refusal to accept Pathways to Housing as a representative payee does not
disqualify a person from the program.

All housing units are privately owned, independent apartments in the community secured
through Pathways to Housing’s network of landlords, brokers, and managing agents. Housing
units are located in low-income neighborhoods in Queens, East and West Harlem, Westchester
County, and Brooklyn. The Pathways to Housing Housing Department and ACT team members
work with each client to find an acceptable apartment. Clients are offered a choice among up to
three apartments. Pathways to Housing holds the lease and sublets the apartment to the client.
The program assumes that housing tenure is permanent. Housing rules resemble standard lease
requirements.

Pathways to Housing has six ACT teams that provide a range of intensive clinical, rehabilitation,
and support services to clients in their neighborhood areas. These nine-person interdisciplinary
teams consist of a substance abuse specialist, nurse practitioner, part-time psychiatrist, family

10
Pathways to Housing confirmed that the sample is representative of the larger program with the following
exception: 42 percent of the sample entered the program from psychiatric hospitals, which reflects the addition of
funding from psychiatric hospitals to provide housing to homeless patients upon discharge.
11
Pathways to Housing reported that 24 clients in the study met the joint federal definition of chronically homeless.
It should be emphasized, however, that this interpretation assumes that nine of the eleven clients who enrolled from
psychiatric hospitals met the criteria for chronic homelessness prior to a short-term psychiatric hospital stay and
were determined on a case-by-case basis most likely to become homeless upon discharge.

xix

Executive Summary
systems specialist, wellness specialist, employment specialist, social workers, and an
administrative assistant. Each ACT team is available 24 hours a day, seven days a week to
monitor and respond to the needs of 60–70 clients. Clients choose the array and sequencing of
support services offered by the ACT team. If a client requires inpatient treatment, Pathways to
Housing will hold the apartment for 90 days; if the absence is longer, the apartment will be
released and the client is guaranteed access to a new apartment upon program reentry.

Reaching Out and Engaging to Achieve Consumer Health (REACH), San Diego, California
REACH was established in 2000 out of concerns that vulnerable homeless people risked being
displaced by the construction of a new sports stadium in downtown San Diego. In response, the
San Diego County Mental Health Services Division successfully applied for a $10.3 million
competitive state grant under California’s AB 2034 program. The grant gave the county the
resources to design integrated services for seriously mentally ill homeless people.
12
The San
Diego County Mental Health Services Division contracted with Telecare Corporation to engage,
house, and provide case management within 6 months to 250 chronically homeless individuals
with mental illness. The program has been fully leased since June 2001, and now averages five
or six new cases a month.

REACH requires that clients have an axis I diagnosis of mental illness, have been homeless at
least 6 months during the past year, and want to be housed through REACH. Eighty-six percent
(n = 25) of program enrollees tracked for this study met HUD’s definition of chronic
homelessness. The majority of REACH clients come directly from the streets through a
Homeless Outreach Team (HOT), which is sponsored by the San Diego Police Department and
made up of a police officer, benefits specialist, and mental health counselor. REACH also has an
outreach specialist who works with mentally ill people on the streets to help them move into
housing. After the client agrees to come into housing and a unit is available, the HOT
accompanies the client to REACH for screening and formal enrollment.

While the REACH program offers placement into housing without requirements for treatment or
sobriety, many of the housing options have strict requirements or rules restricting substance use.
Most clients first enter either a safe haven or an SRO hotel.
13
Most housing agreements have
requirements regarding visitors, disruptive behavior, and substance use. REACH staff make it
clear to clients, however, that the program will help them maintain permanent housing. Some
clients who experience difficulty with the housing requirements may need additional case
management support to either solve the problems or move to another housing location with fewer
rules. Some clients demonstrate housing stability in the safe haven or SRO and may stay for
long periods. Depending on housing stability, some clients are placed in scattered-site
apartments within a few months of enrollment.

12
California Assembly Bill (AB) 2034 allocated funds to expand and provide services for homeless persons,
parolees, and probationers with serious mental illness. The California Department of Mental Health awarded funds
to 32 counties to provide housing and supportive services to this population. After a demonstration year in three
counties under AB 34, AB 2034 made funding available statewide to provide integrated services for homeless
people with mental illness.
13
Out of a total of 29 REACH clients who participated in this study, 31 percent (n = 9) stayed in the safe haven for a
range of five nights to up to 12 months, with the majority (n = 6) of clients staying less than 3 months.

xx

Executive Summary
One case manager is assigned to each client at enrollment. There are no treatment requirements
other than meeting with the case manager biweekly. Case managers assess each client, develop a
service plan, and provide assistance to obtain medical and psychiatric services, crisis response,
money management, self-help and community resources, substance abuse intervention, education
and counseling, vocational services, assistance with entitlements, and support and education of
family and significant others. Each case manager carries a caseload of 23 clients and works as
part of a team dually certified in mental health and substance abuse treatment. Under a separate
contract with the county, the Community Research Foundation provides employment,
psychiatric, rehabilitative, and nursing services to REACH clients.

Key Similarities and Differences among Housing First Study Sites
The three Housing First programs selected for this study share a commitment to serve homeless
individuals who are seriously mentally ill and have co-occurring substance-related disorders. A
large majority of clients enrolled in the study had met the federal definition of chronic
homelessness, though a portion did not technically meet that definition at entry, since they had at
that point already spent some time in a setting other than the streets or in an emergency shelter.
The programs also share a commitment to place people in permanent housing without service
participation or sobriety requirements. The service approaches emphasize helping clients remain
stably housed. Case managers continue to followup with clients who leave program housing to
maintain engagement in services and encourage them to return to housing. Key differences
among the programs are the type of housing offered (including the use of transitional
placements) and the structure for delivering services.

Pathways to Housing offers scattered-site housing secured through a network of private landlords
and management companies. The Pathways to Housing model includes the ability to offer
clients more choice in housing and neighborhoods. In addition, the program limits the number of
clients housed in any given building, thus encouraging community integration. This approach is
contingent on continued landlord willingness to lease to program clients. Pathways to Housing
encourages landlord participation by holding the lease and subletting the apartment to the client.
ACT teams are assigned to neighborhood-based offices so they can more easily maintain contact
with clients and landlords and quickly resolve any issues that may arise.

DESC owns or controls the housing where its clients live and serves as the primary service
provider. This approach allows staff to provide a high level of supervision and offers the
greatest latitude among the three programs in responding to the challenges of housing this
population. Staff are located on site and can respond immediately to issues that may arise.
However, with housing located in a small number of buildings in a limited geographic area, this
approach minimizes community integration and limits client choices in housing.

At REACH, separating housing assistance from the case management function helps create
distance between lease enforcement—which a housing provider must pursue—and the case
management support that may help clients address problems that could threaten their housing.
REACH does not own or control any housing and staff are based in a central office, but work
with sizeable caseloads that are geographically dispersed. However, a number of the housing
providers that lease to REACH clients have strict lease requirements prohibiting drug or alcohol
use, and therefore REACH clients experience frequent moves before achieving housing stability.

xxi

Executive Summary
REACH case managers spend quite a bit of time addressing problems that occur due to substance
abuse.
STUDY FINDINGS

Housing First programs are intended to target the hardest-to-serve homeless individuals who
have a serious mental illness, often with a co-occurring substance-related disorder. Moreover,
these programs are designed to increase housing stability for people who traditionally have been
very difficult to house or have had difficulty maintaining their housing. The presumption is that
once housing stability is achieved, clients are better prepared to address their mental illness and
substance-related disorders. In addition, program housing combined with support services can
stabilize a client’s financial status and promote self-sufficiency.

This study collected information on demographic and client characteristics at baseline, as well as
12-month outcomes, including housing tenure, changes in impairment related to psychiatric
symptoms and substance use, and changes in clients’ income and self-sufficiency. Demographic
and client background information was based on case managers’ knowledge of the clients and
administrative records. Case managers in each of the programs reported the outcomes data at
baseline and each month during the 12-month study period.
14
Although these data were subject
to case managers’ judgment, the case managers in all three programs gave every evidence of
knowing their clients’ situations very well and seemed to make informed judgments.
Furthermore, the same case manager made the judgments over time for each client, diminishing
any inter-rater variability issues (i.e., issues arising from different raters using different scales).
Nevertheless, the judgments were necessarily subjective, and there is no guarantee that a case
manager was entirely consistent across the 12-month period.

The study sample included 25 clients at DESC, 26 clients at Pathways to Housing, and 29 clients
at REACH for a total sample size of 80 clients. Study clients enrolled in the three Housing First
programs between June 2003 and August 2004, with two-thirds entering between December
2003 and May 2004.
15

Client Characteristics at Enrollment
The clients enrolled in this study represent the severely impaired homeless population that
Housing First programs intend to target. The majority of clients were chronically homeless (88
percent), had a primary diagnosis of mental illness (91 percent), exhibited symptoms of mental
illness or psychiatric problems (83 percent), and were at least moderately impaired by their
symptoms at enrollment (97 percent of those with symptoms). Three-quarters of the clients had a
history of substance abuse, and one-half of the clients were abusing substances at the time of
enrollment. More than two-thirds of the sample (69%) had co-occurring mental illness and
history of substance abuse. In addition, these clients had limited work histories, low educational
attainment, and a high incidence of criminal records.

14
Case managers collected baseline data upon a client’s enrollment into the Housing First program. For clients who
were part of the retrospective data collection effort, case managers also collected their baseline information
retrospectively using administrative records. Case managers collected data for month 1 following the end of the first
month after the client entered the program. Case managers collected data for month 12 following the end of the
client’s 12th month in the program.
15
Much of the study data were collected retrospectively. Clients included in the study sample entered the Housing
First programs as early as June 2003, but the programs reported baseline data during June and July of 2004.

xxii

Executive Summary

Clients who entered the Housing First program from different living situations often
demonstrated different service needs. Those entering the program directly from the streets were
more likely to have criminal records and more severe levels of psychiatric and substance-related
impairment. Clients from shelters also had a high frequency of criminal records, but were less
likely to be currently abusing drugs or alcohol. These clients were also less likely to have a
primary diagnosis of mental illness, possibly indicating a lack of psychiatric assessment, rather
than the absence of psychiatric problems. Finally, those who entered the program from a
psychiatric hospital were typically older, had little education and no employment history, and
had severe psychiatric impairment, presenting unique challenges to increase levels of self-
sufficiency. A large majority (86 percent) of those who entered the program from a psychiatric
hospital were defined by their programs as having been chronically homeless.
16

Housing Tenure
The Housing First approach is designed to improve housing stability for people who traditionally
have been very difficult to house or have had difficulty maintaining their housing. The primary
indicator of a program’s ability to improve clients’ housing stability is the percentage of clients
who stay in the program. It is important to note, however, that in all three programs “staying in
the program” meant that case managers and other program staff were in contact with the client,
even if the client left the program housing for short periods. In most cases, a client was not
considered to have left the program until he or she had been absent from their housing for 90
days. Thus, housing stability is viewed somewhat differently in Housing First programs
compared to other homeless assistance programs where such absences would more quickly result
in clients losing their housing.

The majority of clients tracked for this study remained enrolled in the Housing First program for
1 year following program entry. Of the total sample of 80 clients, 43 percent of the clients who
stayed in the program were characterized as “stayers” because they spent the entire 12-month
period in program housing. Another 41 percent of the clients who stayed in the program were
characterized as “intermittent stayers” because they experienced at least one temporary departure
to another living environment during the course of the 12-month period, but then returned to
Housing First housing. The remaining 16 percent of clients left the program or died within the
first 12 months—these clients were referred to as “leavers.”

The differences in outcomes for stayers, intermittent stayers, and leavers were modest, but some
patterns emerged. Clients who entered the Housing First program from the streets were most
likely to leave the program within 12 months (69 percent) and were also most likely to
experience temporary program departures (36 percent). The clients with the highest levels of
housing stability were those who entered the program from shelters, jail or a psychiatric hospital,
or some other location, including crisis houses and living with friends. Clients with the lowest
levels of housing stability were those who entered the program from the streets and experienced
higher levels of impairment related to psychiatric symptoms during their last month in housing.

While the majority (69 percent) of the sample overall had a co-occurring psychiatric diagnosis

16
These clients came from a short psychiatric hospital stay (less than one year) but were continuously homeless for
a year or longer, or had at least four homeless episodes during the last 3 years before hospitalization.

xxiii

Executive Summary
and history of substance-related disorders, such dually diagnosed clients were even more
prevalent among intermittent stayers (70 percent) and leavers (77 percent).

Outcomes
Program staff in the three Housing First programs cautioned that, given the severity of their
clients’ symptoms, they would expect limited improvements in levels of impairment within 12
months. This was consistent with the findings from the present analysis. Although clients may
experience month-to-month variation in their levels of impairment, the data do not demonstrate
any substantial trends in impairments related to psychiatric symptoms or related to substance use
over the course of the first year in program housing. However, clients’ incomes did increase
slightly over the period (from non-employment sources), although their incomes were still well
below the poverty line.

SUMMARY AND IMPLICATIONS

Pathways to Housing, DESC, and REACH were selected for this study in part because they share
a commitment to serving homeless people with chronic mental illness and emphasize placement
into permanent housing without requirements for sobriety and treatment compliance. The
programs differed on a number of dimensions, including the type of housing utilized, the location
and intensity of services, and the use of representative payees. The study’s findings lead to
several conclusions about the program features that appear to promote housing stability and other
positive outcomes and suggest implications for HUD policy.

Program Elements
With only three sites and broadly similar outcomes across sites, it is difficult to say definitively
which program features are essential to program success. However, based on patterns in
outcomes observed in the client-level data, interviews with program staff, and focus groups with
program participants, a number of program elements emerge as important contributors to
program success in the three study sites.

• Access to a substantial supply of permanent housing—The key similarity among the
housing strategies at the three programs was access to a substantial stock of permanent
housing for their clients. However, the three programs differed substantially in the types of
housing offered to clients, and each approach offered benefits and challenges. The dispersed
housing and neighborhood-based ACT teams at Pathways to Housing offer consumer choice
and intensive services, but require developing a large network of landlords and supporting
the highly skilled professionals that comprise the ACT team. The DESC model, where the
primary service provider owns or controls the housing and provides a high level of
supervision, can respond to the challenges of housing this population, but this approach
limits client choices in housing and seems to limit community integration. The REACH
model poses certain challenges—the service provider does not own or control housing, case
managers have sizeable caseloads, the program is geographically dispersed—but has the
advantages of flexible state funding and Medicaid billable services that allow the program to
provide housing assistance as well as community-based client support.

xxiv

Executive Summary
• Providing housing that clients like—Evidence from this study indicates that clients are
satisfied with the permanent supportive housing offered in these programs. Forty-three
percent of clients did not leave their housing at all during the first year and only a few of the
leavers left voluntarily. Focus group participants at DESC and Pathways to Housing cited
the privacy, independence, safety, and quality of their housing as positive features of their
program experience. There were some complaints from focus group participants at REACH
about the quality and safety of some of the housing locations, but REACH staff
independently acknowledged these concerns and described how they were working toward
possible solutions. Regarding the importance of housing choice, DESC and REACH clearly
offer less choice than Pathways to Housing, but clients reported that the choice of housing
over homelessness was important to them.
17
Nevertheless, clients’ perceptions about the
extent to which they have choices in their housing may influence their housing stability.

• Wide array of supportive services to meet the multidimensional needs of clients—Each of
the three programs offers a wide array of supportive services to help clients maintain their
housing and meet other needs. These services include comprehensive mental health services,
substance abuse treatment, medication assistance, as well as help with independent living
skills, such as money management and housekeeping.
18
Staff are available around the clock
to assist clients. At DESC, each housing location is staffed 24 hours per day and clinical staff
are on call during overnight hours. Similarly, a staff member at REACH and Pathways to
Housing is always on call to respond to issues that may arise.

• Service delivery approach that emphasizes community-based, client-driven services—
Common features of service delivery across the three programs include a low demand
approach to substance use, integrated substance abuse and mental illness treatment services,
and a focus on helping clients develop skills for independent living. All three programs
emphasize providing services primarily in the housing where people live. Program staff from
all three programs emphasize the importance of client-driven service planning. Focus group
participants expressed appreciation for the “do whatever it takes” attitude with which case
managers approached their work.

• Staffing structure that ensures responsive service delivery—The staffing structure for
delivering services differs across the three programs, but in all cases is designed to make sure
clients’ needs are met. Access to multidisciplinary staff is clearly important, but the
experience of DESC and REACH indicate that services can be delivered using a service
model different from the ACT teams used at Pathways to Housing. The nine-member ACT
teams at Pathways to Housing include specialists in mental health, substance abuse, and
employment who meet regularly to discuss clients’ needs and decide how to respond most
appropriately. REACH and DESC offer similarly diverse services, but do not use the ACT
team model. Staff from REACH and DESC report that their service delivery structures offer

17
Additional research on client satisfaction in these three programs is currently underway, and preliminary results
indicate that clients are very satisfied with their housing (P. Robbins and J. Monahan, Housing Leverage Pilot Study
by the John D. and Catherine T. MacArthur Foundation on Mandated Community Treatment).
18
In the three study sites, the use of representative payees seems to be a useful tool for working with some clients,
but programs do not require this and payees do not seem to be a mechanism for exerting leverage over clients.
Roughly two-thirds of the sample had a payee for at least one month during the tracking period. Some 59 percent of
those who had a payee had a staff member from the Housing First program as their payee.

xxv

Executive Summary
a cost-effective alternative to the highly credentialed (and seemingly more costly) ACT team
model. While caseloads differ across programs, the availability of staff response 24 hours a
day is a key similarity among the sites. The use of daily team meetings and collaborative
case planning further enhance coordination and consistency so that staff resources are
immediately responsive to client needs.

• Diverse funding streams for housing and services—The three Housing First programs serve
clients with extremely low incomes and limited resources to pay for housing, services, and
other needs. The programs rely on a variety of funding streams to meet the needs of their
clients. To fund mental health case management services, each of the programs seek
Medicaid reimbursement, which requires licensing and administrative sophistication to
document and bill for services appropriately. All three programs also receive funding for
clinical services from state or county sources. HUD programs subsidize a substantial
portion—but not all—of the housing. Supportive Housing Program, Shelter Plus Care, and
Section 8 Moderate Rehabilitation for SRO programs are used to assist clients.
19

Policy Implications for HUD
The Housing First programs in this study achieved the important outcome of housing stability for
a number of the clients in this hard-to-serve population. Although the authors understand that
the limited sample of clients constrains the confidence within which we can draw policy
implications, we would commend the following suggestions to the Department.

• The HUD priorities of addressing chronic homelessness and providing permanent housing
are furthered by Housing First programs—The programs predominantly serve people who
meet HUD’s definition of chronic homelessness and achieve substantial housing stability for
this population, although the most impaired clients, including persons coming directly from
the streets, are still the most likely to leave.

• Lack of conditions on housing may be less important than the direct access—DESC and
Pathways to Housing offer direct access to housing without customary service requirements.
At REACH, however, many clients enter housing at a safe haven with occupancy rules,
including a prohibition on drugs and alcohol, a curfew, and assigned chores for all residents.
Despite these requirements, clients preferred to accept this housing, rather than to continue
the hardships of homelessness. It is important to acknowledge, however, that all three
programs use transitional stays for at least some clients.

• Housing stability does not come without challenges—The advantage of the Housing First
approach for the chronically homeless people served is that direct placement in housing
solves the elemental problem of homelessness. The dilemma is that it does not necessarily
resolve other issues that may impede housing success. Findings from this study indicate that
housing problems do occur, including problems that would result in the loss of housing in
many programs. In addition, a substantial proportion of the clients tracked left their program

19
The scope of work for this study did not call for an analysis of program costs, but each of the three program sites
were asked to provide a rough estimate of the annual per client cost of housing and services. The costs reported
seemed low and likely understated services costs. Future research that would collect and analyze program costs
would be very valuable in assessing the replicability of these programs.

xxvi

Executive Summary
housing for short periods during their first year. Housing stability requires a service
approach that focuses on helping people keep their housing, as well as subsidy mechanisms
that permit holding units for people who leave temporarily.

• HUD resources are an important source of housing subsidies in these programs, but
tensions exist between a low demand approach to substance use and HUD’s concerns
about any criminal activity, in particular drug activity, in HUD-supported housing—This
tension may be less pronounced in a program like DESC where the primary service provider
also owns or controls the housing. It is more pronounced in programs like Pathways to
Housing and REACH that lease housing from private landlords. Program staff in these
programs work diligently with clients to show them how their behavior may jeopardize their
housing. Pathways to Housing also works to normalize clients’ living situations in scattered-
site housing, ensuring that no more than 10 percent of a building is occupied by program
clients. Responding to landlord concerns regarding housing problems is important to
fostering good relationships and maintaining access to a supply of scattered-site apartments.

• Serving this population requires a long-term commitment to providing housing
assistance—Provision of housing did not result in substantial improvements in mental illness
or substance-related disorder symptomology within the 12-month study period. These clients
have long-standing mental illnesses and, in most cases, co-occurring substance-related
disorders. While the housing provided by the programs increased housing stability and
afforded the opportunity to receive treatment, substantial progress toward recovery and self-
sufficiency often takes years and is not a linear process. Longitudinal tracking of clients both
within and after leaving Housing First programs is needed to identify the factors that
contribute to long-term housing stability of chronically homeless people with serious mental
illness and co-occurring substance-related disorders.

xxvii

Executive Summary

xxviii

CHAPTER 1: INTRODUCTION AND BACKGROUND

Since the mid-1990s, communities have come to recognize that addressing chronic homelessness
is the cornerstone of an effective plan to end homelessness. Chronically homeless people are
defined by the Interagency Council on the Homeless as disabled and continuously homeless for a
year or longer, or having had at least four homeless episodes during the last three years.
Disabilities, at least as they relate to homelessness, often include serious mental illness,
substance abuse problems, and HIV/AIDS (Burt et al., 2004). Over the past decade, evidence
indicates that housing with services, especially for homeless single adults with serious mental
illness, increases housing tenure, reduces hospital stays, and reduces homelessness (Rog, 2004).
Simultaneously, the research and practitioner communities have expressed interest in Housing
First as a promising approach to assist the hardest-to-serve chronically homeless population to
leave the streets by offering housing first without requiring treatment as a condition for entering
or retaining housing.

In theory, the Housing First approach is quite different from approaches that transition people
with serious mental illness from the streets to permanent housing. In these programs, providers
assume that homeless people with severe impairments require a period of structured stabilization
prior to entering permanent housing, often involving stays in a series of housing settings along a
continuum of increasingly independent living. Entering the continuum often requires that the
homeless person commit to a service plan and agree to abstain from using drugs or alcohol. At
times, clients’ symptoms related to mental illness or substance abuse may worsen and require an
increased level of service provision or even institutional care, temporarily halting, and possibly
reversing, progress along the path toward independent living.

Some homeless people with mental illness and substance-related disorders are willing to accept
these conditions, although not all are able to maintain their commitment to service plans and, as a
result, may lose their housing. Other homeless people simply reject the offer and remain on the
streets or in shelters. These two groups—those unable to succeed in a more structured approach
to services and those resistant to accepting services—are the primary targets for the Housing
First approach.

This study takes an exploratory look at whether the Housing First approach is a promising
response to chronic homelessness and the needs of homeless people with serious mental illness.
The majority of homeless assistance funding through the U.S. Department of Housing and Urban
Development (HUD) that is directed toward permanent supportive housing would not be
classified as Housing First. Although funding from the Supportive Housing Program and Shelter
Plus Care may be used by Housing First programs, most projects that receive funding from these
sources are not considered Housing First. This study provides some insight into whether the
Housing First approach is an effective and appropriate model of response, as well as what
constitute the key features of that approach.

1

Chapter 1: Introduction and Background

WHAT IS THE HOUSING FIRST APPROACH?

During recent years, Congress and HUD leadership have encouraged the development of
permanent housing for homeless people. Concurrently, there has been a move away from HUD-
funded supportive services and an increase in attention toward the hardest-to-serve chronically
homeless population, a substantial number of whom are mentally ill (39 percent of homeless
individuals report some form of mental health problems and 20–25 percent of homeless
individuals meet the criteria for serious mental illness).
20
At the same time, there has been
interest among practitioners in the Housing First approach to serving this population.

Although the Housing First approach may be constructed in a number of ways, the distinguishing
features of the Housing First approach are:

• The direct, or nearly direct, placement of targeted homeless people into permanent housing.
Even though the initial housing placement may be transitional in nature, the program
commits to ensuring that the client is housed permanently.

• While supportive services may be offered and made readily available, the program does not
require participation in these services to remain in the housing.

• The use of assertive outreach to engage and offer housing to homeless people with mental
illness who are reluctant to enter shelters or engage in services. Once in housing, a low
demand approach accommodates client alcohol and substance use, so that “relapse” will not
result in the client losing housing (Marlatt and Tapert, 1993).
21

• The continued effort to provide case management and to hold housing for clients, even if
they leave their program housing for short periods.

Although Housing First approaches include programs serving families, this particular study
focuses only on programs that target chronically homeless adult individuals with disabilities,
particularly serious mental illness and substance abuse.

HOW AND WHEN DID THE HOUSING FIRST APPROACH COME ABOUT?

The first and most well known Housing First model to date is Pathways to Housing in New York
City. Established in 1992, Pathways to Housing offers individuals who are homeless and have
psychiatric or substance-related disorders direct access to permanent, independent apartments

20
The incidence of mental illness among homeless individuals was obtained from the Substance Abuse and Mental
Health Services Administration, National Resource and Training Center on Homelessness and Mental Illness at
http://www.nrchmi.samhsa.gov/facts/facts_question_2.asp (accessed on 9/19/05).
21
The low demand approach addresses the harms caused by risk-taking behavior without forcing clients to eliminate
the behavior altogether (Marlatt and Tapert, 1993). For example, abstinence is a form of low demand for those who
want to quit using drugs, but, for those who are not ready, case managers must start with interventions that can help
a substance user improve his or her life. Interventions might include reminding the client to eat, drink water, sleep,
pay rent and other bills before spending money on drugs, and educating users about the negative effects of drugs and
encourage them to use less frequently, if not quit using entirely.
2

Chapter 1: Introduction and Background

without requiring participation in psychiatric treatment or sobriety as a precondition for entering
housing (Tsemberis, Gulcur, and Nakae, 2004). Following housing placement, interdisciplinary
Assertive Community Treatment (ACT) teams are available 24 hours, 7 days a week to provide
treatment, support, and other needed services to the client in a neighborhood office or in their
own home.
22

Pathways to Housing separates housing and treatment services. Clients rent apartments—with
the lease held by Pathways to Housing—from landlords who do not have a direct relationship
with the program.
23
Pathways to Housing ACT teams provide individualized support and
treatment services in the community. The program uses a low demand approach, which does not
prohibit substance use as a condition for obtaining or retaining housing. The only program
requirements are that clients pay 30 percent of their income for rent, mostly through a
representative payee money management program, and that they participate in two home visits
by their case manager each month.

Since 1992, several programs based on the Housing First model have been developed and
implemented. As a first step in this study, the study team conducted a nationwide canvass to
learn more about the existence of programs that describe themselves as Housing First and serve
homeless single adults with mental illness. The canvass findings indicate that there are many
programs identifying themselves as Housing First that have several features of the Housing First
approach—direct, or nearly direct, placement of a homeless individual into permanent housing
without treatment requirements and the presence of a variety of service providers available to
address client needs in the community. Chapter 2 summarizes the findings from the canvass.

WHY IS RESEARCH NEEDED?

Current trends in working with chronically homeless individuals with serious mental illness and
often co-occurring substance-related disorders indicate that Housing First is recognized as a
promising strategy to serve this population. The increased targeting of funding to address the
needs of chronically homeless people has coincided with the development of this strategy across
the country. For example, HUD has established the needs of persons who experience chronic
homelessness as a priority in awarding funding for its competitive homeless assistance programs.
In addition, the Interagency Council on the Homeless coordinated joint awards by HUD, Health
and Human Services and Veterans Affairs, member agencies. Those awards totaled $55 million
in grants to 11 cities across the country as part of a Collaborative Initiative to End Chronic

22
The ACT approach at Pathways to Housing is modified from the original ACT teams developed in Madison,
Wisconsin, by Stein and Test (1980). The goals of the ACT teams are to enhance the client’s community
adjustment, decrease time spent in institutions, and prevent the development of a chronic “patient” role. Key
features include small caseloads with low staff to client ratios, neighborhood proximity for client monitoring, and
easy access for needed services or assistance with activities of daily living and community integration. See Chapter
2 for more information.
23
At Pathways to Housing, clients rent apartments in buildings that are not owned by the agency. Although
Pathways to Housing does not initially have a direct relationship with the landlords, a positive and trusting
relationship develops over time so that landlords continue to accept Pathways to Housing clients in their buildings.
In addition, Pathways to Housing will only place clients in a particular building if the percentage of tenants who are
also clients of Pathways to Housing is less than 10 percent.
3

Chapter 1: Introduction and Background

Homelessness. The objective is to increase permanent housing solutions to address the
chronically homeless population.
24

Evidence to date suggests that permanent supportive housing for homeless single adults with
mental illness increases housing tenure, reduces rates of hospitalization and lengths of stay, and
decreases homelessness. In addition, persons placed in supportive housing experience reductions
in shelter use, hospitalizations, length of stay per hospitalization, and time incarcerated (Culhane,
Metraux, and Hadley, 2002). Evaluations that tested a range of housing types and services of the
New York/New York Agreement found high retention rates in supportive housing, regardless of
the particular configuration of housing and services, especially when compared to more
restrictive environments.
25
Compared to those placed in community residential treatment
facilities, the Pathways to Housing supportive housing approach resulted in increased housing
stability. After 5 years in housing, 88 percent of Pathways to Housing clients remained housed,
whereas only 47 percent of the residents in the residential treatment system remained housed
(Tsemberis and Eisenberg, 2000).

To distinguish it from other “supportive” housing approaches in the homeless services
continuum of care, the Housing First approach at Pathways to Housing is referred to as
“supported” housing—permanent, independent housing with flexible, individualized service and
supports that are integrated into the community and chosen by the consumer. Housing needs are
considered paramount and separate from treatment needs (Tsemberis, 1999; Carling and Curtis,
1997). Treatment-oriented options constitute the remainder of the residential continuum (Lipton
et al., 2000). While studies thus far do not provide clear direction on the level of service
intensity needed to maintain this population in permanent housing, studies of supported housing
models show improvements among homeless persons with mental illness (Tsemberis, Gulcur,
and Nakae, 2004; Susser et al., 1997; Bebout et al., 2001).

Regardless of housing approach, those who stay in housing longer are older than those who leave
the housing and are more likely to have mood disorders, rather than schizophrenia (Lipton et al.,
2000; Tsemberis and Eisenberg, 2000).
26
Also, regardless of housing approach, those who exit
housing earlier are more likely to have substance abuse problems (Tsemberis and Eisenberg,
2000; Lipton et al., 2000; Goldfinger et al., 1999; Hurlburt, Wood, and Hough, 1996). In
addition to finding that those with a history of substance abuse have a shorter tenure in housing,
Lipton et al., (2000) found that mentally ill substance abusers had a greater risk of leaving

24
The Collaborative Initiative to End Chronic Homelessness is a joint initiative of the U.S. Department of Health
and Human Services, Veteran’s Affairs, and HUD. This initiative pooled funding for 11 community partnerships to
provide housing and services to long-term disabled homeless people. See http://www.ich.gov/2003.html.
25
Begun in 1989, the New York/New York Agreement was a supportive housing initiative struck between the
governor and mayor, Mario Cuomo and David Dinkins, to build 3,600 units of housing specifically targeted to
chronically homeless people with mental illness. The agreement provided housing and services through two general
models: supportive housing, including independent apartments or SRO housing either with or linked to community-
based service supports; and community residence facilities, including community residences, long-term treatment
facilities, and adult homes. Supportive housing is independent housing linked to community-based or psychiatric-
based service support while community residences integrate housing and service delivery with mandatory resident
participation.
26
Mood disorders include depressive disorders, bipolar disorders (characterized by depressive and manic episodes)
and substance-induced mood disorders. Schizophrenia and other psychotic disorders include delusions or
hallucinations.
4

Chapter 1: Introduction and Background

housing during the first 4 months in more structured and restrictive housing models, whereas
those placed in low or moderately structured settings displayed longer residential stability.

Research on permanent supportive housing has not focused specifically on the Housing First
approach, with the exception of research conducted by the originator and director of Pathways to
Housing (Tsemberis, Gulcur, and Nakae, 2004; Tsemberis, et al., 2003; Shern, et al., 2000;
Tsemberis and Eisenberg, 2000; Tsemberis and Asmussen, 1999; Tsemberis, 1999). As more
Housing First programs develop, they tend to vary in detail and emphasis. This exploratory
study identifies the existing permutations of the Housing First approach that appear to respond to
the needs of homeless people with serious mental illness. It describes the characteristics of
programs that seem to be influential in housing tenure, stability, and other positive outcomes for
clients.

WHAT ARE THE GOALS OF THE STUDY?

To learn more about the Housing First approach, HUD contracted in 2003 with Walter R.
McDonald & Associates, Inc. (WRMA) and its partner Abt Associates Inc. to conduct this study.
This study provides an overview of Housing First programs in the United States, which serve
individuals with a serious mental illness, as well as a detailed analysis of the program
characteristics and client outcomes of the three programs studied. Specifically, the goals of the
study were the following:

• Identify Variations in the Housing First Approach. The study team accomplished this
goal through a telephone canvass conducted to identify existing Housing First programs and
collect basic information on their program features. A second purpose of the canvass was to
identify possible sites for more intensive study. Through this process, the study team
contacted every agency that the study team, HUD staff, and advocates identified as operating
a Housing First program for individuals with serious mental illness. For the in-depth
analyses of three Housing First programs, the study team interviewed program staff, tracked
program participation and outcomes over a 12-month period at each site, and conducted
focus groups with clients. The specific research questions addressed to meet this goal were:

1. What are the features of the programs with respect to target population, housing options,
and service models?
2. What are the clients’ characteristics (demographics, previous living situation, diagnoses)?

• Explore Outcomes for Clients who Participate in These Programs. The study team
accomplished this goal by selecting three Housing First programs for the study and tracking
the experiences and outcomes of clients for 12 months after they entered the program. The
specific research questions addressed to meet this goal were:

1. How long do the clients remain in program housing?
2. Where do the clients go when they leave? Are they in stable housing situations?
3. Why do some clients leave the program within 12 months of placement?
5

Chapter 1: Introduction and Background

4. What are the clients’ levels of engagement in services and do they increase the longer
they are in the program?
5. How satisfied are the clients with their housing and other aspects of the program?
6. Are there differences in outcomes across the three programs? What program operations
or client characteristics might explain the differences?

Outcomes of interest included housing tenure and stability, as well as changes in level of
impairment related to mental illness and substance use, independence in financial and medication
management, and frequency of housing problems.
27

OVERVIEW OF THE METHODOLOGY

The overall approach to this study included four main tasks:

• Canvass Housing First programs in the United States that serve individuals with a serious
mental illness and develop criteria to select two study sites, in addition to Pathways to
Housing, for in-depth analysis of the program characteristics and client outcomes;

• Engage the three selected Housing First programs by conducting baseline and followup site
visits, interviewing program staff, and gathering detailed information about the operation of
the program;

• Select and track formerly homeless study participants over a 12-month period at each site,
engage local researchers to interview the participants who left the program within 12 months
of placement, and conduct focus groups with participants; and

• Analyze tracking and focus group data to compare outcomes across sites.

See Appendix A for the specific methods used to conduct each of these tasks.

Identify Programs for Study
The canvass identified Housing First programs across the country. (See Chapter 2 for findings
from the canvass and Appendix B for a summary table of Housing First programs.) In addition
to addressing the research questions, the most important purpose of the canvass was to identify
two sites, in addition to Pathways to Housing, that met the requirements for the study. These
requirements included:

• The program had been in operation for at least one year;

• The program enrolled at least eight new clients per month or, alternatively, had enrolled at
least 25 persons within the 6 months prior to data collection for the study;

27
Outcomes related to client choice, satisfaction, and quality of life will be expanded upon in a separate study of this
Housing First cohort, sponsored by the MacArthur Foundation, to be published at a later date. The MacArthur
Foundation Grant-funded pilot study tests an instrument that collects quantitative data on client coercion, choice,
and satisfaction in housing programs, including this Housing First study cohort.
6

Chapter 1: Introduction and Background

• The program had good data collection and client tracking procedures; and
• The program indicated a willingness to participate in the study.

The most suitable sites for further study needed to serve a similar population with some
operational differences from Pathways to Housing. In addition, the sites needed to present some
variability to the “essential complements” considered important to clients’ success:

• A strong emphasis on client choice in housing, resulting in clients living in dispersed
apartments owned by private landlords;

• A service approach that did not co-locate housing and services; and

• Widespread use of the program as clients’ representative payee.

The two programs most suitable for further study—Downtown Emergency Service Center
(DESC) in Seattle, Washington, and Reaching Out and Engaging to Achieve Consumer Health
(REACH) in San Diego, California—incorporated key features of the Housing First approach,
were comparable to the Pathways to Housing program model, and commensurate with the other
study requirements. Chapter 3 describes the rationale for selecting these programs for study and
provides brief descriptions of each. (See Appendices C–E for detailed site descriptions.)

Engage Housing First Programs
Following the canvass and site selection process, the study team worked with each of the
selected sites to secure its agreement to participate in the study. The program staff provided
information about the operations of the Housing First programs, selected and tracked the study
sample, and worked with the study team to ensure that the data were accurate. The study team
visited each site twice during the course of the study—once at baseline and the second time
following the conclusion of data collection activities.

Select and Track Study Participants
The study team worked with each of the sites to select and track program participants over a
period of 12 months.
28
The study team also engaged and worked with local researchers to gather
information about program leavers and conducted focus groups at the close of the 12-month data
collection period to elicit feedback from study participants regarding the Housing First program.

The study team acknowledges several limitations of the data collection process. First, case
managers at each of the study sites collected baseline and monthly client data from case records
and other administrative data sources, not directly from clients. Second, given the low rate of
new client enrollment at the study sites, a great deal of monthly tracking data had to be collected
retrospectively as few new clients entered the programs during the study enrollment period.
Finally, at one site the study team determined that the quantitative data collected through
administrative sources did not reflect the anecdotal information gathered through focus groups
and conversations with case managers. To ensure that these administrative data were accurate,

28
Appendix A describes the sample selection and informed consent process, as well as the baseline, retrospective,
and monthly data collection process.
7

Chapter 1: Introduction and Background

case managers at this site retrospectively reported revised monthly data on the level of
impairment related to alcohol and drug use and mental illness, temporary program leaves, and
total service contacts.

REPORT ORGANIZATION

The six remaining chapters discuss the study’s findings and implications.

• Chapter 2: Canvass of Housing First Programs—This chapter presents a summary
description of the Housing First programs that the study team identified during a nationwide
canvass in late 2003.

• Chapter 3: Key Features of Housing First Study Sites—This chapter presents the key
features of the Housing First programs selected for this study. The chapter begins with a
brief explanation of why the study team selected these sites, followed by brief overviews of
each site, and concludes with a cross-site analysis of the key features.

• Chapter 4: Characteristics of Housing First Clients—This chapter presents the
demographic characteristics of the 80 clients who enrolled in the study.

• Chapter 5: Housing Tenure—This chapter presents data regarding housing tenure for all
clients who participated in the study, as well as additional information about those clients
who left the program during the first 12 months.

• Chapter 6: Outcomes—This chapter presents the outcomes experienced by the clients who
stayed in the Housing First program for at least 12 months.

• Chapter 7: Summary and Implications—This chapter presents the implications of the
study findings for HUD and local communities in terms of policy, practice, and future
research.

Appendices A and B describe additional information on the data collection and include charts
with the findings of the canvass. Appendices C–E describe the three Housing First programs in
detail. Each of these site Appendices includes:

• A brief description of the Housing First model;
• The background, population served, housing offered, and funding of the approach;
• How the approach transitions homeless people to housing;
• Services offered after enrollment; and
• Essential complements of the approach.

Finally, Appendix F supplies a glossary of acronyms used in the report, and Appendix G
contains the list of references cited in the report.
8

CHAPTER 2: CANVASS OF HOUSING FIRST PROGRAMS

To document the key variants of Housing First programs across the United States and to identify
sites for further study, the study team conducted discussions with prospective study programs
between December 8, 2003, and February 3, 2004. The discussions addressed the basic features
of each program, including type of housing offered, scale of the program, target population,
referral source, and conditions that clients must meet for housing. Specifically, these discussions
enabled the study team to identify programs that met the following criteria that define Housing
First for this study.

• The direct, or nearly direct, placement of targeted homeless people into permanent housing.
Even though the initial housing placement may be transitional in nature, the program
commits to ensuring that the client is housed permanently.

• While supportive services may be offered and made readily available, the program does not
require participation in these services to remain in the housing.

• The use of assertive outreach to engage and offer housing to homeless people with mental
illness who are reluctant to enter shelters or engage in services. Once in housing, a low
demand approach accommodates client alcohol and substance use, so that “relapse” or
increased substance use will not result in the client losing housing (Marlatt and Tapert,
1993).
29

• The continued effort to provide case management and to hold housing for clients, even if
they leave their program housing for short periods.

In addition, the study team was particularly interested in identifying Housing First programs that
serve unaccompanied adults with a serious mental illness and had some of the features of the
Pathways to Housing model. The features of the Pathways to Housing model that the study team
attempted to identify in other programs were: Community-based mental health treatment case
managers; Assertive Community Treatment (ACT) teams; assertive outreach to work with hard-
to-serve homeless mentally ill people who are reluctant to enter shelters or engage in treatment
services; and use of a low demand approach to substance use.

To identify programs to participate in these canvass discussions, the study team contacted
sources identified in Walter R. McDonald & Associates, Inc.’s (WRMA) and Abt Associates’
previous studies of homelessness, as well as national experts in homelessness. These contacts
included staff from the U.S. Department of Housing and Urban Development (HUD)

29
The low demand approach addresses the harms caused by risk-taking behavior without forcing clients to eliminate
the behavior altogether (Marlatt and Tapert, 1993). For example, abstinence is a form of low demand for those who
want to quit using drugs, but for those who are not ready, case managers must start with interventions that can help a
substance user improve his or her life. Interventions might include reminding the client to eat, drink water, sleep,
pay rent and other bills before spending money on drugs, and to educate users about the negative effects of drugs
and encourage them to use less frequently, if not quit using entirely.
9

Chapter 2: Canvass of Housing First Programs
Headquarters and field offices, the National Alliance to End Homelessness, Center for Urban
Studies, Interagency Council on the Homeless Regional Coordinators, the Corporation for
Supportive Housing, state and local departments of mental health services, housing developers,
and mental health and homelessness consortia. As the study team identified Housing First
programs, staff at some programs also offered additional contacts.

The canvass provided a wealth of information about the current status of Housing First programs
across the country as of late 2003. The study team conducted canvass discussions with
33 programs—nine incorporated the key features of the Housing First model and 14 incorporated
many of the key features, but did not target single unaccompanied adults with a serious mental
illness. The study team did not consider the remaining 10 programs to follow the Housing First
approach because clients were required to participate in treatment prior to placement, or because
the program did not primarily serve homeless people.

This chapter describes the Housing First programs identified through the canvass and provides
some generalizations about the implementation of the Housing First approach in the programs
the study team contacted. Appendix B contains tables that summarize the key features of each
program.

HOUSING FIRST PROGRAMS

Through canvass discussions, the study team identified 23 programs that could be classified in
varying degrees as Housing First. Nine of the programs incorporated all of the key features of
the Housing First model—direct, or nearly direct, placement into housing permanently, no
requirements for clients to participate in services, and services provided in the community. The
remaining 14 programs met some, but not all, of these criteria.

The nine programs (including Pathways to Housing) that incorporated the key features of the
Housing First model were:

• Community Housing Network, Columbus, Ohio;
• Direct Access to Housing, San Francisco, California;
• Downtown Emergency Service Center (DESC), Seattle, Washington;
• Horizon House, Philadelphia, Pennsylvania;
• Lamp Community, Los Angeles, California;
• Pathways to Housing, New York City, NewYork;
• Reaching Out and Engaging to Achieve Consumer Health (REACH), San Diego County AB
2034, San Diego, California;
30

• Sunshine Terrace, Columbus, Ohio; and
• The Village, Los Angeles County AB 2034, Long Beach, California.

30
California Assembly Bill (AB) 2034 allocated funds to expand and provide services for homeless persons,
parolees, and probationers with serious mental illness. The California Department of Mental Health awarded funds
to 32 counties to provide housing and supportive services to this population. After a demonstration year in three
counties under AB 34, AB 2034 made funding available statewide to provide integrated services for homeless
people with mental illness.
10

Chapter 2: Canvass of Housing First Programs
The additional 14 programs incorporated some of the Housing First features. However, most of
the programs in this group did not recruit or enroll severely mentally ill homeless persons
directly from the streets without an intermediary placement or did not target homeless people
with mental illness. These programs were:

• Anishinabe Waikiagun, Minneapolis, Minnesota;
• Avalon Housing, Ann Arbor, Michigan;
• Canon Kip Community House, San Francisco, California;
• Chicago Housing for Health Partnership, Chicago, Illinois;
• Common Ground, New York City, New York;
• Commons at Grant, Columbus, Ohio;
• Contra Costa County Public Health Homeless Program, Contra Costa County, California;
• Dwelling Place, Grand Rapids, Michigan;
• Housing Initiatives, Madison, Wisconsin;
• Phoenix Programs, Inc., Concord, California;
• Project HOME, Philadelphia, Pennsylvania;
• Sacramento County AB 2034, Sacramento County, California;
• Tellurian, Madison, Wisconsin; and
• The Wintonia, Seattle, Washington.

The following sections provide a cross-site discussion of the Housing First approach in the
programs the study team contacted. These sections describe the program scale and target
populations as well as the primary features of the Housing First approach—identification of
clients; immediacy of placement into permanent housing and the types of housing where the
clients are placed; treatment requirements prior to and following program entry; and the Housing
First programs’ approaches to service provision, including use of an ACT team or assertive
outreach and use of a low demand approach to addressing clients’ substance use.

Program Scale
The Housing First programs identified through the canvass vary widely in size, from 40 clients to
more than 400. The largest program is Pathways to Housing, serving 465 individuals. The
Village reported serving 375 clients in permanent housing and Direct Access to Housing
reported serving 393 clients at the time of the canvass. Some of the larger programs including
Direct Access to Housing, Community Housing Network, Contra Costa County Public Health
Homeless Program, and the Lamp Community anticipated increases in enrollments due to receipt
of a Chronic Homeless Initiative grant in 2003. These grants, they proposed, would enable them
to open new facilities to provide permanent housing for chronically homeless individuals.

Many of the Housing First programs reported limited turnover due to relatively high retention
rates. Most programs reported retaining at least 90 percent of their clients during their first year
of placement. As a result, most programs enroll as few as one or two new clients per month.
Two other large programs with more than 300 residents each—Common Ground and DESC—
reported enrollments of fewer than one or two a month because they do not admit new clients
until a vacancy is available in their buildings. Contacts at the programs reported two basic
responses to individuals who want to enter the program when there is not a vacancy: placing the
client in an emergency shelter, transitional housing, or motel until there is a vacancy, and
11

Chapter 2: Canvass of Housing First Programs
maintaining a waiting list of individuals in the community who are interested in entering the
Housing First program.

Populations Served
The main focus of the canvass was to identify Housing First programs that provided housing and
services to homeless individuals with a serious mental illness. All of the programs serve
homeless people as they define homelessness, although not all may meet HUD’s definition of
homelessness. For example, one program focused on serving only clients who were discharged
from jail and were not homeless before entering jail, but had a pattern of episodic homelessness.
Many programs primarily targeted individuals with mental illness, which is often associated with
a co-occurring substance-related disorder. Three-quarters of the programs canvassed reported
that a large percentage of their clients were mentally ill persons with co-occurring substance-
related disorders.

Other programs did not focus specifically on mental illness, even though a large portion of their
populations had a mental illness. For example, Anishinabe Waikiagun targeted persons with
substance abuse issues, specifically chronic inebriates living on the streets, a percentage of
whom were mentally ill. Approximately one-quarter of the clients at Avalon Housing and one-
half of the clients at the Commons at Grant had neither a mental illness nor a substance-related
disorder, but were homeless. The Chicago Housing for Health Partnership targeted individuals
with at least one of 10 identified chronic illnesses; 80 percent of these individuals had a history
of chronic substance abuse, and an estimated 20–30 percent had a mental illness.

Identification of Clients
Referral sources for clients varied widely among these programs. Only 10 of the 23 programs—
Anishinabe Waikiagun, Canon Kip Community House, Contra Costa County Public Health
Homeless Program, Direct Access to Housing, Horizon House, Lamp Community, Pathways to
Housing, The Village, REACH, and Sunshine Terrace—recruited primarily from the streets. The
majority of these were programs considered to be consistent with the basic Housing First model.
DESC recruited the majority of its clients from emergency shelters where there are no sobriety
requirements. The Chicago Housing for Health Partnership received referrals of homeless
individuals with chronic medical conditions from three local hospitals. Several other programs
recruited clients from local homeless shelters and drop-in centers.

In addition, nine of the 23 programs accepted formerly homeless individuals with mental illness
or substance abuse problems upon discharge from jail, detoxification facilities, or psychiatric
hospitals—Anishinabe Waikiagun, Chicago Housing for Health Partnership, Contra Costa
County Public Health Homeless Program, Direct Access to Housing, Lamp Community, The
Village, Pathways to Housing, Sacramento County AB 2034, and Sunshine Terrace. Several
programs reported referrals from agencies for clients (whom no one else would serve) when the
discharge plan would otherwise be to homelessness. Pathways to Housing had a higher than
average proportion of clients from psychiatric hospitals during this timeframe because of a new
contract with local psychiatric hospitals.
12

Chapter 2: Canvass of Housing First Programs
Immediacy of Placement into Permanent Housing
The greatest variation among Housing First programs was the speed of placement into housing.
While programs prioritized placement into housing, very few of the programs achieved the goal
of immediately placing clients into permanent housing, other than Pathways to Housing and
Direct Access to Housing. Even these programs occasionally place clients in a very short-term
placement before the permanent housing is located. Most Housing First programs directly place
the client into some type of housing, with the understanding that the relationship between the
client and program is permanent.

Representatives from several programs offered housing choice to clients through a range of
housing options. Clients could choose among these options, which included board and care
facilities, single room occupancy (SRO) hotels, and scattered-site housing. Most programs
offering some level of choice ultimately placed clients in scattered-site housing—and some were
able to offer choice among units—while some programs required intermediary steps to adjust
from living on the streets to living in a home. For some programs, the use of transitional housing
was a requirement to achieve permanent housing, while for others it was a matter of necessity as
housing units were not available.

Several programs either required, or strongly encouraged, clients to participate in a transitional
housing program. For example, in the Sacramento County AB 2034, two nonprofit agencies had
the goal of placing homeless people with psychiatric disabilities in permanent housing.
However, rather than placing clients directly in housing, most clients were placed in a
transitional setting for one month while staff helped them identify housing that would best suit
their needs. Another example was the Chicago Housing for Health Partnership that recruited
homeless clients from local hospitals and required them to spend one to 12 weeks in an interim
facility. This intermediary placement helped clients to stabilize from their hospitalization and
determine the type of housing that would be most suitable for their needs.

Some programs placed clients in temporary or transitional housing first because the programs
experienced low turnover rates and had to wait for a vacancy to occur before placing the
individual. To address this issue, some programs used waiting lists. Avalon Housing advertised
housing openings in the local newspaper. Once a waiting list was developed, the agency
conducted a tenant selection process. While on the waiting list, potential clients typically
secured services from local providers. A similar situation took place at the Canon Kip
Community House, where clients from the waiting list eventually moved to permanent housing,
but may have resided in a number of settings during the waiting period. At DESC, clients on the
waiting list were prioritized by who needed the housing most.

Housing Types
A feature considered critical to the success of the Pathways to Housing model was offering
clients “choice” in their housing. The Pathways to Housing program leases scattered-site
apartment units from a variety of landlords, offering clients two or three apartments from which
they may choose.
31
Two other programs also offered clients choice in their housing—Horizon
House and The Village. Most programs were not able to offer their clients “choice” in housing,

31
Clients at Pathways to Housing who participated in focus groups with the study team reported that the array of
choice offered to them, in terms of their scattered-site apartment, was acceptable.
13

Chapter 2: Canvass of Housing First Programs
because the units offered were limited to units the program owned or leased. Due to low
program turnover rates, programs offered clients whatever vacancy occurred during a given
month.

Fifteen of the programs offered units where the entire building was master-leased or owned by
the program—Anishinabe Waikiagun, Avalon Housing, Canon Kip Community House,
Common Ground, Commons at Grant, Community Housing Network, Direct Access to Housing,
Dwelling Place, DESC, Lamp Community, Phoenix Programs, Project HOME, Sunshine
Terrace, Tellurian, and The Wintonia. Three programs offered housing choice, but only
following a transitional stay in an intermediate housing facility or assessment of the type of
housing need—Sacramento County AB 2034, Chicago Housing for Health Partnership, and
Housing Initiatives.

Clients more often than not held their own leases for their permanent housing unit. In the
instances when they did not, the Housing First program held the lease for the client—as is the
case at Pathways to Housing—or the unit was part of a building owned by the Housing First
program. At Housing Initiatives, the client holds the lease, but the Housing First program
submits a letter to the landlord to guarantee that rent will be paid.

Treatment Requirements
Because the presence of treatment requirements prior to and following enrollment in the Housing
First program was a primary criterion that made programs ineligible for further study, most of
the programs described in this chapter did not require any mental health or substance abuse
treatment prior to enrollment in the program. One program reported that clients would be
required to participate in services if their housing were in jeopardy, while another
“encouraged”—but did not require—clients to be clean and sober and medication compliant.

Approach to Services
The majority of programs reported service requirements regarding case management and lease
agreements. One-half of the programs described case management as using an ACT team
approach, primarily working on behaviors that jeopardize housing and secondarily working on
issues to improve the tenants’ quality of life. Case management services, whether located on or
off site, were intended to ensure that the client did whatever was required to maintain housing.
For example, Pathways to Housing required that most clients agree to participate in a money
management program and that all clients agree to a minimum of two apartment visits per month
by their case manager. Most programs assign a primary case manager to each client, with access
to multidisciplinary teams, either on-site or within easy access for every client. Daily client
contact was the norm in most programs, with goals of working with clients flexibly and at their
own pace.

The study team did not specifically inquire about a low demand approach at each of the
programs. This information was collected only for the three Housing First programs that were
selected for intensive study. These programs reported utilizing a low demand approach to
substance use and that program enrollment was not contingent on participation in treatment.
14

Chapter 2: Canvass of Housing First Programs
SUMMARIES OF PROGRAMS NOT SELECTED FOR STUDY

The study team selected Pathways to Housing, DESC, and REACH for further study. These
programs are described in detail in Chapter 3, as well as in Appendices C–E. The following are
brief descriptions of the programs that best fit the definition of Housing First but were not
selected for study. Most of these programs were not selected for study because they had recently
received grants as part of the Chronic Homeless Initiative and it was thought inadvisable to
impose a second evaluation effort on them.

Community Housing Network, Columbus, Ohio
Established in 1987, the Community Housing Network began providing housing for individuals
with disabilities related to addiction in 1998. During February 1999, the Community Housing
Network opened its first project for street homeless individuals with co-occurring disorders. The
Community Housing Network has 109 Housing First units in the Columbus area. The clients
who live in these units have been diagnosed with a serious mental illness and many have a co-
occurring substance-related disorder. Clients enter the program through shelters and are
identified by a street outreach team. They move directly into permanent supportive housing
units in buildings owned by the program and do not have to agree to a treatment regimen. The
Community Housing Network was awarded a contract with the Community Shelter Board 

through the Chronic Homeless Initiative grant to develop 80 units of scattered-site housing for
the Housing First program.

Direct Access to Housing, San Francisco, California
Established in 1998, the San Francisco Department of Public Health’s Direct Access to Housing
program provides permanent housing with on-site supportive services for approximately
400 adults, most of whom have concurrent mental health, substance use, and chronic medical
conditions. Targeted toward “high-utilizers” of the public health system, Direct Access to
Housing is a “low threshold” program that actively recruits single adults into permanent housing
directly from the streets, shelters, acute hospitals, or long-term care facilities. The program
accepts residents with active substance abuse disorders, serious mental health conditions, or
complex medical problems. The program provides some choice of permanent supportive
housing in six SRO residential hotels and a licensed residential care facility, where the program
holds the lease. Supportive services on site consist of case management, medical care, a roving
behavioral health team, and property and money management. Since the opening of the first site
in 1998, more than two-thirds of the residents have remained housed in the Direct Access to
Housing program for up to 2 years.

Horizon House, Philadelphia, Pennsylvania
Horizon House runs a Housing First program called “New Keys” that targets individuals with co-
occurring disorders of mental illness and substance abuse who are living on the streets. Forty
people are in this program, which began in March 2003. Clients enter the program through a
prioritization process on the homeless database maintained by various outreach teams that
identify individuals with the longest times on the streets. This is a scattered-site program in
which clients may select the neighborhood in which they want to live and staff choose two or
three apartments from which clients may choose. Clients are not required to commit to treatment
as a condition of housing, but some agree to treatment plans, which they complete before
15

Chapter 2: Canvass of Housing First Programs
entering. Horizon House uses an ACT team approach, not case managers, and each client is
required to meet with the ACT team at least twice per month, but may meet with them as often as
several times per day. Horizon House recently received an Chronic Homeless Initiative grant to
start a second Housing First program.

Lamp Community, Los Angeles, California
The Lamp Community serves 100 homeless adults with mental illness using a Housing First
approach. Eighty percent of these adults also have substance abuse issues. Ninety percent of
Lamp Community clients come from the streets or from jail, via the streets. Clients hold their
own leases in Lamp Community’s 50-unit building and in an additional 30 units through an
agreement with a nonprofit developer. Lamp Community also has a 10-unit master lease through
another nonprofit developer. Some clients choose to stay at the safe haven until they are ready
for the responsibility of an apartment; others move from the apartments to the shelter when they
need a break from the responsibilities of their apartment. Lamp Community’s residences offer
on-site, voluntary services. The Lamp Community received a Chronic Homeless Initiative grant
and planned to use this money to place an additional 62 people in 2005.

Sunshine Terrace, Columbus, Ohio
Sunshine Terrace serves individuals with mental illness and co-occurring substance-related
disorders, 90 percent of whom are from shelters, with the remainder coming directly from the
streets. Sunshine Terrace uses a Housing First approach for permanent supportive housing in
two locations—a building owned by the Young Men's Christian Association (YMCA) that has
65 SRO units, and a 180-unit building owned by the Columbus Metropolitan Housing Authority
that has 65 Housing First units. Clients have no treatment requirements prior to or following
enrollment in the program. On-site teams with community-based supportive services have daily
contact with most residents.

The Village, Los Angeles County AB 2034 Program,
Long Beach, California
The Village, a program of the Mental Health Association of Los Angeles, is one of 19 programs
funded by California’s AB 2034 program in Los Angeles County. The Village houses
approximately 400 individuals—all of whom have a serious mental illness—in permanent,
scattered-site housing. The program identifies clients on the streets or in jails and gives them a
range of housing choices, from board and care facilities to permanent apartments. Clients do not
have to agree to a treatment regimen, but must be affiliated with a case manager prior to
placement in housing. The program works with the client to identify services that he or she may
want or need. Interactions between case managers and clients occur approximately once each
week.

CONCLUSIONS

To conduct the national canvass of Housing First programs, the study team used the definition of
Housing First described above, as well as some key features of the Pathways to Housing model,
as the standard to identify other Housing First programs. Canvass findings revealed that
23 programs incorporated many, if not all, of the key features of the Housing First model.
16

Chapter 2: Canvass of Housing First Programs
The results of the canvass also indicated that the Housing First “model” is not a single model, but
rather a set of general features and approaches that communities interpret somewhat differently.
The study team observed wide variation among programs along several dimensions, including
the populations served, the immediacy of placement, the type of housing offered, and the array of
services available. Despite these variations, all 23 programs shared the key feature of a
commitment to offer housing first to hardest-to-serve homeless persons, rather than requiring a
period of stabilization, sobriety, or commitment to treatment to demonstrate housing readiness.

The widest variation among the 23 programs identified as Housing First occurred in the
immediacy of placement in a permanent housing unit. While programs expressed a strong
commitment to direct placement into permanent housing, the study team identified only two
programs for which this was the case: Pathways to Housing and Direct Access to Housing.
Programs used a variety of approaches to move clients quickly from the streets and into housing,
with the understanding that the program would permanently place the client. Given low turnover
rates and limited funding for additional housing units, most programs could enroll only one or
two new cases per month. Those programs with new grants, either from the Chronic Homeless
Initiative or from other sources, were able to develop more housing and enroll many new clients
to increase program size. For most programs, however, the availability of new units depended
on a turnover frequency that is low, given the high housing retention rates.

Variation also appeared in the type of housing offered to clients at the time of program
enrollment. Many programs offered very little choice in housing and many offered transitional
placements until more permanent housing units became available. Most programs did make
access to housing barrier-free, and the transitional placements did not have many requirements.

Through the canvass, the study team identified sites for study that exemplify existing
permutations of the Housing First approach, with program characteristics that met the study
criteria. The remainder of this report presents findings on the three intensive study sites.
17

Chapter 2. Canvass of Housing First Programs

18

CHAPTER 3: KEY FEATURES OF HOUSING FIRST STUDY SITES

This chapter briefly describes the rationale for selecting the three Housing First programs:
Downtown Emergency Service Center (DESC), Pathways to Housing, and Reaching Out and
Engaging to Achieve Consumer Health (REACH). Following the rationale for site selection, the
chapter provides a brief overview of each of the programs. The overview places each program’s
activities in the context of the key features of the Housing First approach described in Chapter 1.
Each program is described in terms of five main topics:

• Background—How the program developed its Housing First approach and obtained funding
to provide housing and services;

• Population Served—How and why the program selected its target population, a description
of the target population, and how the program identifies and enrolls the target population;

• Type of Housing Offered—The housing types offered to clients;

• Transition from Homelessness to Permanent Supportive Housing—How and when clients
transition from homelessness into housing; and

• Housing and Services Following Enrollment—How the program organizes and provides
services after the client is placed in housing.

The chapter concludes with a cross-site analysis of the Housing First programs selected for
study. More detailed descriptions of the programs can be found in Appendices C–E.

RATIONALE FOR SITE SELECTION

An important purpose of the nationwide canvass of Housing First programs described in
Chapter 2 was to identify and recommend two study sites, in addition to Pathways to Housing,
that met the criteria for the study, incorporated key features of the Housing First approach, and
offered some contrast to the Pathways to Housing approach. The two programs selected for
further study—DESC and REACH—incorporated many of the key features of the Housing First
approach. Both DESC and REACH served primarily homeless people with serious mental
illness and emphasized placement into housing without requirements for sobriety and treatment
compliance. Variation in key areas, including type of housing utilized, location and intensity of
services, and representative payeeship, provided interesting contrasts to the model employed by
Pathways to Housing.

DESC and REACH satisfied other important criteria for inclusion in this study. Both programs
had been in operation for at least one year—DESC had been in operation since 1994 and
REACH since 2000. Each program had sufficient size to collect data on a combination of new
19

Chapter 3: Key Features of Housing First Study Sites
client enrollments, in addition to those enrolled within the last year, to fulfill study sample
requirements. Program staff indicated that they maintained databases of client characteristics
and services provided and made efforts to continue contact with clients, even if the clients left
program housing. Finally, both agencies were willing to participate in the study. The following
sections provide a brief overview of each of the study sites.

DOWNTOWN EMERGENCY SERVICE CENTER (DESC), SEATTLE

Background
DESC began as an emergency shelter operator in 1979 and was certified as a licensed mental
health provider in 1980. King County, Washington contracted with DESC to provide emergency
shelter and case management to the chronically homeless population that increasingly was
becoming a problem in the downtown business community. In 1994, the U.S. Department of
Health and Human Services designated DESC as a demonstration program site in its Access to
Community Care and Effective Services and Supports (ACCESS) program.
32
Following the
ACCESS demonstration, King County continued funding for DESC to find and engage homeless
people with mental illness through its Homeless Outreach, Stabilization and Transition (HOST)
Project.

Frustrated by the lack of an effective service system for homeless people with mental illnesses,
DESC worked with the mental health and addiction treatment systems in Seattle to develop long-
term housing for the mentally ill, chemically dependent, chronically homeless population. DESC
started a permanent supportive housing program with a Housing First approach in May 1994.
Outreach and engagement focus on the most vulnerable homeless people on the streets or in
shelters. The program offers permanent housing without requiring that the client participate in
services or maintain sobriety. The housing is located in four buildings that DESC either owns or
controls. The housing is supported by funding from various U.S. Department of Housing and
Urban Development programs, including the Supportive Housing Program (SHP) and Section 8
Moderate Rehabilitation Single Room Occupancy (SRO) Program.

Population Served
DESC serves more than 300 clients at one time and places three to six new clients each month.
DESC staff estimate that approximately 30 percent of clients come directly from the streets, with
the remainder coming from emergency shelters.

DESC’s goal is to serve the most vulnerable homeless people. The Annual Progress Report
submitted to HUD in 2003 indicated that almost all of the new clients who entered DESC
housing had a mental illness and a substance-related disorder.
33
Of the 25 clients tracked for this

32
One of the goals of the ACCESS program was to improve integration of service systems that provide housing and
services for homeless people.
33
Grantees operating HUD competitive homeless assistance programs submit annual reports that provide
information necessary to assess program performance, including participant entry and exit information.
20

Chapter 3: Key Features of Housing First Study Sites
study, 84 percent (n = 21) had met HUD’s criteria for “chronic homelessness” sometime within
the past three years.
34, 35

Type of Housing Offered
DESC maintains 306 units of permanent supportive housing in four buildings that it either owns
or controls. Each location serves slightly different populations and is staffed by 24-hour, on-site
staff who are trained in both property management and supportive services. Clinical mental
health and substance abuse services are coordinated by community case managers associated
with DESC’s licensed mental health and substance abuse treatment divisions.

Kerner-Scott House is a 25-unit safe haven for seriously mentally ill people referred through
DESC’s homeless outreach program. The safe haven serves the most impaired and least engaged
of DESC’s clients. Each safe haven resident has an efficiency apartment that includes a small
kitchen, eating and sleeping area, and bathroom. Technically, the maximum length of stay at
Kerner-Scott House is 24 months, but this is not strictly enforced. Unless they choose not to,
Kerner-Scott House residents move on to one of DESC’s other buildings. Program staff
typically begin talking to residents about other housing options as clients express the desire to
move.

The other three buildings are SRO hotels located within a three-block area in the Pioneer Square
neighborhood. Residents may move to one of these buildings after a period of stay at Kerner-
Scott House, or may be referred directly by DESC’s outreach team. All of the buildings provide
private apartments with kitchenettes and baths, on-site meals, staff offices, and community
rooms. There are no time limits on stays in any of these buildings, and turnover is low.
According to program data, more than 90 percent of residents housed in September 2005 had
been in DESC housing (at one or more locations) for at least two years. The Morrison Hotel is
the largest building with 180 residential units and a 203-bed emergency shelter, also operated by
DESC. The Lyon Building has 64 units and serves people with AIDS and mental illness or a
substance-related disorder. Referrals to the Lyon building come from DESC outreach, as well as
from AIDS service providers. The Union Hotel is a 52-unit SRO building serving seriously
mentally ill clients referred from Kerner-Scott House or DESC’s outreach team.

Transition from Homelessness to Permanent Supportive Housing
The majority of DESC clients enter the Housing First program through HOST outreach workers.
A HOST case manager may offer a client housing at any point during the engagement process.
If the client seems ambivalent or unwilling, the HOST staff work with the client to learn more
about the housing and become comfortable there. Because vacancies are rare, staff maintain a
waiting list with the most candidates who display the most need receiving the highest priority for
housing. In the interim, HOST staff maintain as much contact as possible with candidates where

34
A chronically homeless person is defined as an unaccompanied homeless individual with a disabling condition
who has either been continuously homeless for one year or more or has had at least four episodes of homelessness
during the past 3 years. Because HUD defines homelessness as sleeping in a place not meant for human habitation
or an emergency shelter, those coming into Housing First programs from a psychiatric hospital or jail had to have
been previously homeless.
35
The four individuals from DESC who were not identified as chronically homeless were homeless prior to
enrollment, but did not meet criteria of being continuously homeless for one year or having had four episodes during
the past 3 years.
21

Chapter 3: Key Features of Housing First Study Sites
they are living on the streets or in the shelter. Due to the lack of eligibility criteria for housing
and intensive services, Kerner-Scott House serves the most vulnerable clients and those with
whom the staff are least familiar. Clients who have a relationship with case management are
more likely to be referred to one of the other buildings and to participate in discussions with
housing staff and their clinical case manager to determine the appropriate living environment,
beginning at enrollment.

Applicants for housing do not have to agree to participate in services as a condition of receiving
or retaining their housing. DESC requires representative payees in a small number of cases
(fewer than 10 percent) where the client has a history of rent payment problems. In addition,
staff estimate that 30–40 percent of the agency’s clients have representative payees mandated by
the Social Security Administration or the state of Washington as a condition of receiving
benefits.

Housing and Services Following Enrollment
DESC is staffed by 24-hour, on-site case managers known as clinical service coordinators, who
carry caseloads of approximately 34 people. DESC’s service model emphasizes working with
clients where they live, as well as closely coordinating between housing-based clinical service
coordinators and community case managers. Staff do not work as teams similar to the Assertive
Community Treatment (ACT) team model; instead, clinical service coordinators take the lead in
developing residential service plans with input from the community case manager and the client.
The plans address several domains including housing retention, medical and mental health
services, substance abuse treatment, education, vocational services, and reconnecting with family
and friends. Housing and clinical case managers confer regularly in person and by telephone. In
addition, a sophisticated on-line data system allows staff to log all contacts with clients. When a
contact is logged into the system, an e-mail notification is automatically sent to the staff who
work with the client to ensure adequate communication among all partners.

The intensive staffing in the buildings means that staff have frequent contact with most clients.
DESC staff acknowledge, however, that housing a large number of people with serious mental
health issues in close proximity to each other may create more problems than would occur if
clients lived in dispersed areas. The important factor in DESC’s model, staff add, is that on-site
staff are available to address problems if they do arise.

Units can be held for residents who leave and are expected to return. In most cases, a unit is
held for 90 days. If the client returns after 90 days, DESC will place the client in another unit
as quickly as possible. The reasons for 73 program departures from the 306 permanent
housing units over a recent 12-month period included reasons that could be considered
positive, such as leaving for more appropriate housing (44 percent), and others: return to
homelessness (14 percent) or an unknown location (15 percent), deaths (11 percent), or
permanently moving in with family or friends (7 percent).
22

Chapter 3: Key Features of Housing First Study Sites
PATHWAYS TO HOUSING, NEW YORK CITY

Background
Pathways to Housing started in 1992 with 50 apartments in Hell’s Kitchen and Harlem in
Manhattan and a $500,000 grant from the New York State Office of Mental Health. The
Pathways to Housing approach was the response of Dr. Tsemberis, a clinical psychologist
conducting outreach in New York City, to his frustration with the lack of an effective service
system to house homeless mentally ill persons and to keep them housed. Since 1993, Pathways
to Housing has provided outreach and housing placement to homeless persons with mental
illness who dwell on the streets of New York City. Pathways to Housing offers clients
independent, scattered-site apartments in privately owned buildings in affordable neighborhoods
in New York City. Six neighborhood-based ACT teams provide support to clients living in their
neighborhood.

Population Served
Pathways to Housing serves 450 individuals with histories of homelessness, severe psychiatric
disabilities, and co-occurring substance-related disorders. Pathways to Housing gives priority to
those whom other homeless assistance providers will not serve. Prior to program entry, many of
these homeless individuals have been frequent users of crisis services, such as psychiatric
hospitals, emergency departments, and the criminal justice system. Referral sources include
several of New York City’s outreach teams, drop-in centers, jails, hospitals, and shelters.
Pathways to Housing staff also conduct some direct outreach.

Over the past 2 years the majority of new enrollees at Pathways to Housing have been referrals
from outside agencies that have contracts to provide funding, such as the Westchester County
Department of Social Services or state and county psychiatric hospitals. These contracts have
infused much needed new funding for services and housing into the program but have resulted in
an increase in new enrollments coming primarily from psychiatric hospitals. Averaging three to
five new enrollments per month, institutional discharges accounted for 50 of Pathways to
Housing’s new enrollments over the past 2 years and psychiatric discharges constitute 42 percent
(n = 11) of the current study sample.
36
Prior to enrolling in Pathways to Housing, these clients
resided in psychiatric hospitals for an average of 6.8 months—five clients stayed in psychiatric
hospitals for 3 months or less. Despite the large proportion of psychiatric discharges, Pathways
to Housing staff reported that 92 percent (n = 24) of the clients who participated in this study had
met HUD’s definition of chronically homeless within the past three years.
37

36
Pathways to Housing confirmed that the sample is representative of the larger program with the following
exception: 42 percent of the sample entered the program from psychiatric hospitals, which reflects the addition of
funding from psychiatric hospitals to provide housing to homeless patients upon discharge.
37
Pathways to Housing reported that 24 clients in the study met the joint federal definition of chronically homeless.
It should be emphasized, however, that this interpretation assumes that nine of the eleven clients who enrolled from
psychiatric hospitals met the criteria for chronic homelessness prior to psychiatric hospitalization and were
determined on a case-by-case basis most likely to become homeless upon discharge.
23

Chapter 3: Key Features of Housing First Study Sites
Type of Housing Offered
All housing units are privately owned, independent apartments in the community secured
through Pathways to Housing’s network of landlords, brokers, and managing agents. Housing
units are located in low-income neighborhoods in Queens, East and West Harlem, Westchester
County, and Brooklyn. The Housing Department at Pathways to Housing works with ACT team
members and clients to find an acceptable apartment and typically offers clients up to three
choices at enrollment. When housing moves occur due to lease violations or problematic
behavior, clients may be offered fewer options, but the ACT team works with the client to find
another apartment to suit the client’s choice. Program units include studio, one-bedroom, and
two-bedroom apartments with private baths. Pathways to Housing provides all essential
furniture, such as a bed, mattress, bureau, table and chairs, as well as pots, pans, dishes,
telephone, and television.

Pathways to Housing signs the lease and sublets the apartment to the client. The Housing
Department at Pathways to Housing and ACT teams maintain relationships with landlords,
ensuring that clients meet their lease obligations. The Housing Department also monitors repairs
and lease renewals, and ensures that all essential services are provided and that tenants’ rights are
protected. The program assumes that housing tenure is permanent, with no actual or expected
time limits. Housing rules resemble standard lease requirements.

Transition from Homelessness to Permanent Supportive Housing
Upon enrollment, the client may reside in a shelter or be placed in a hotel or at the Young Men's
Christian Association (YMCA) while working with the Housing Department at Pathways to
Housing to secure an apartment. Because Pathways to Housing is at full enrollment, referrals
depend on the referral source, availability of a housing subsidy, and ACT team capacity.
Westchester County Department of Social Services and the New York Presbyterian Hospital
programs refer directly to the Westchester ACT team. Kingsboro Psychiatric Center and Kings
County Hospital refer directly to the Brooklyn ACT team. All referrals are centralized through
the two clinical program managers to prioritize enrollment. Pathways to Housing enrolls two or
three new clients each month.

Pathways to Housing is designed to provide clients with immediate access to housing. Unless
they choose to, clients are not required to be drug or alcohol free, acknowledge they have a
mental illness, or participate in any treatment programs. The program has two requirements:
clients have to agree to two case manager visits per month and pay 30 percent of their income—
usually Supplemental Security Income (SSI)—for rent. Most clients agree to allow Pathways to
Housing to act as representative payee for this purpose. These requirements are strongly
recommended; however, refusal to accept Pathways to Housing as a representative payee does
not disqualify a person from the program.

Housing and Services Following Enrollment
Pathways to Housing has six ACT teams, which provide a range of intensive clinical,
rehabilitation, and support services to clients in their neighborhood areas. These nine-person
interdisciplinary teams consist of social workers, a substance abuse specialist, nurse practitioner,
part-time psychiatrist, family systems specialist, wellness specialist, employment specialist, and
administrative assistant. Each ACT team is available 24 hours a day, 7 days a week to monitor
24

Chapter 3: Key Features of Housing First Study Sites
and respond to the needs of 60–70 clients. Clients choose the array and sequencing of support
services offered by the ACT team.

Together, the ACT team and the client develop a Comprehensive Treatment Plan, in which the
client identifies the goals and phrases them in his or her own words. Assessment begins at
enrollment and forms the basis of the client-driven plan, which addresses ten domains including
housing retention, medical and mental health services, substance abuse treatment, education,
vocational services, and reconnecting with family and friends. The money management program
allows Pathways to Housing to act as representative payee for clients until they demonstrate an
ability to pay their rent, utilities, and food bills.

ACT teams spend 80 percent of their time in the community assisting clients to adapt to their
homes and neighborhoods, emphasizing home visits and clinical interactions. The ACT team
provides a range of services to help clients retain housing—one of the most critical factors is the
integration of substance abuse and psychiatric services within each ACT team. Because clients
enrolled in the program have a mental illness—and most have a substance-related disorder—they
often experience symptoms that may lead to their loss of housing. The ACT team’s
collaboration assures that mental health and substance-related interventions appropriately
address problems to help clients to remain stably housed.

Case managers help new clients move into their homes and acclimate to the neighborhood.
Pathways to Housing clients may experience temporary program departures, most frequently for
short stays in psychiatric hospitals or short periods of time on the streets. Following these short
departures from their permanent housing, clients typically return to the same apartment. If a
client requires inpatient treatment, Pathways to Housing will hold the apartment for 90 days; if
the client requires a longer stay in inpatient treatment, the apartment will be released and the
client is guaranteed access to a new apartment upon program reentry.

REACHING OUT AND ENGAGING TO ACHIEVE CONSUMER HEALTH (REACH),
SAN DIEGO

Background
REACH was established in 2000 out of concern that homeless people were at risk of being
displaced by the construction of a new sports stadium in downtown San Diego. In response, the
San Diego County Mental Health Services Division successfully applied for a $10.3 million
competitive state grant under California’s AB 2034 program. The grant gave the county the
resources to design integrated services for seriously mentally ill homeless people.
38

38
California Assembly Bill (AB) 2034 allocated funds to expand and provide services for homeless persons,
parolees, and probationers with serious mental illness. The California Department of Mental Health awarded funds
to 32 counties to provide housing and supportive services to this population. After a demonstration year in three
counties under AB 34, AB 2034 made funding available statewide to provide integrated services for homeless
people with mental illness.
25

Chapter 3: Key Features of Housing First Study Sites
The San Diego County Mental Health Services Division contracted with Telecare Corporation to
engage, house, and provide case management to 250 chronically homeless individuals with
mental illness within 6 months.
39
REACH experienced high turnover in the program during the
early months. REACH staff explained that, due to the short timeframe for program startup,
many of the individuals first enrolled had a more pronounced addiction problem, rather than a
primary diagnosis of serious mental illness. As a response to these initial housing failures,
REACH modified its intake process to improve screening for a primary axis I diagnosis of
serious mental illness.
40

REACH adopted an approach of doing “whatever it takes” to end homelessness for this
vulnerable population. The label of Housing First came 2 or 3 years later, when REACH staff
realized that their approach of offering access to housing without requiring sobriety and
treatment compliance resembled the Housing First model of supported housing. The program
has been fully leased since June 2001, and now averages five or six new cases a month. Since
achieving full enrollment, REACH does some outreach, but relies primarily on referrals from the
community and the San Diego Police Department Homeless Outreach Team (HOT). The HOT
consists of a uniformed police officer and a mental health counselor. The teams reach out to
homeless, mentally ill people living on the streets and identify candidates for screening by a
REACH outreach specialist.
41
The Community Research Foundation partners with REACH to
provide psychiatric services, medical care, and employment support.

Population Served
REACH requires that clients have an axis I diagnosis of mental illness, have been homeless at
least 6 months during the past year, and want to be housed through the REACH program. Some
exceptions to these criteria are made for high priority vulnerable populations, including seniors
and youth in transition from foster care. As of May 2005, two-thirds of the REACH population
had co-occurring mental illness and substance-related disorders, and the remaining one-third had
a diagnosis of mental illness only. Women comprise 43 percent of the REACH population.
Program staff estimate that 70–80 percent of the population lived on the streets prior to program
entry and that the remainder came from shelter or short-term psychiatric placement. Eighty-six
percent (n = 25) of program enrollees tracked for the present study met HUD’s definition of
chronic homelessness.
42

39
Telecare Corporation is a for-profit mental health services provider based in Alameda, California, that has
operated AB 34 demonstration programs and AB 2034 programs in several counties in California. San Diego
County Mental Health Services Division contracted with Telecare Corporation to develop and operate the REACH
program.
40
The Diagnostic and Statistical Manual (DSM) of Mental Disorders, published by the American Psychiatric
Association, describes the diagnostic categories of mental disorders and a multiaxial assessment that includes five
axes. Axis I includes clinical disorders and other conditions that may be a focus of clinical attention—schizophrenia
and other psychotic disorders, mood disorders, anxiety disorders, and other conditions.
41
Because the HOT is part of the San Diego Police Department, there is an inherent question about whether clients
perceive they have a choice about entering housing when the offer comes from a uniformed officer. As one focus
group participant noted, “HOT brought me here. I had been homeless off and on. They said they would bring me
here or to jail.” A former REACH mental health worker has joined the HOT, acting as a liaison between REACH
and the HOT.
42
The four enrollees at REACH who did not meet the joint federal definition of chronic homelessness were referrals
from other mental health providers that met the criteria for vulnerable populations. These individuals were homeless
prior to enrollment at REACH, but had not been continuously homeless for a year or more or had not experienced at
26

Chapter 3: Key Features of Housing First Study Sites
Type of Housing Offered
REACH clients live in more than a dozen types of housing situations throughout the San Diego
area, including a safe haven, a number of SRO hotels, and scattered-site apartments. While the
REACH program offers placement into housing without requirements for treatment or sobriety,
many of the housing options have strict requirements or rules restricting substance use. There is
little housing choice at program enrollment—most residents enter either the safe haven or an
SRO hotel at initial enrollment. The majority of clients stay at the safe haven for less than two
weeks until a unit opens at an SRO, but others stay longer, some as long as 18 months.

Most housing agreements have requirements regarding visitors, disruptive behavior, and
substance use. REACH staff make it clear to clients, however, that the program will help them
maintain permanent housing. Some clients who experience difficulty with the housing
requirements require additional case management support to either solve the problems or move
to another housing location with fewer rules. Some clients demonstrate housing stability in the
safe haven or SRO and may stay for long periods. Depending on housing stability, some clients
are placed in scattered-site apartments within a few months of enrollment. The following
sections describe these types of primary housing locations.

Safe Haven
The Episcopal Community Services safe haven occupies a 19-unit building operated with
funding from the AB 2034 program. A resident assistant is on site 24 hours a day. Residents
have their own apartment that can be locked, each with a refrigerator and sink, and share
bathrooms and kitchen. Prior to entry, new residents must sign a rental housing agreement that
includes: paying 30 percent of their income for rent; following the 10 p.m. weekday curfew, as
well as restrictions on overnight visitors, alcohol or drug possession and use, and possession of
weapons; agreeing to weekly room inspections; and signing in and out when entering or leaving
the premises. If clients prefer the safe haven, they can stay up to 18 months. Occasionally, a
REACH client will choose to remain in the safe haven for more than one year; most clients find
alternative housing within 2 weeks.

SRO Hotels
The advantage to the SRO buildings, which are operated by private landlords, is that they
provide relatively inexpensive apartments in downtown San Diego, with rents ranging from
$300 to $600 per month, depending on the size and location of the apartment. Each unit has a
sink, small refrigerator, and small kitchen area, and men’s and women’s common bathrooms are
located on each floor.

Currently, the Metro Hotel provides the largest number of housing units for REACH clients.
However, concern over the high density of clients in the building, client complaints, and
numerous housing problems led REACH to administer a housing choice questionnaire to all
clients at the Metro Hotel to help them relocate to other housing of choice. The goal is to reduce
the client census at the Metro Hotel from a high of 55 units (of 200 total units) to a maximum of
15 units by December 2005. The other SRO hotels have a smaller number of program clients.
The Plaza Hotel had 20 REACH clients (of 185 total units) and the Lynne Hotel had seven
REACH clients (of 21 total units) as of May 2005.

least four episodes of homelessness during the previous three years.
27

Chapter 3: Key Features of Housing First Study Sites

Scattered-Site Apartments
As of May 2005, 56 REACH clients lived in scattered-site apartments—16 clients were paying
their own rent, while the remaining units were subsidized through a variety of sources, including
AB 2034 funds, HUD’s Shelter Plus Care rental assistance, project-based Section 8 assistance,
and Housing Choice Vouchers. Scattered-site apartments go to less-impaired REACH clients,
usually those who have done well at the SRO hotels and require less staff overnight. A screening
process is in place and includes an interview about what the client does with their day, their
interest in scattered-site housing, level of independence, income, substance use, budgeting,
ability to prepare food, and medication management.

Other Living Situations
Other living situations include ten clients residing in Independent Living Facilities, which
provide one room and a shared bath for every three residents. These facilities are not licensed to
distribute medications, but can remind people and support them. Nineteen REACH clients live
in Board and Care Facilities, which house more impaired clients and are licensed by the state to
distribute medications and to provide meals. Case managers work with clients to offer choice in
housing. In some instances, housing with greater structure may be what the client prefers and
needs.

Transition from Homelessness to Permanent Supportive Housing
The majority of REACH clients come directly from the streets through the HOT. In addition to
the HOT, REACH has an outreach specialist who works with mentally ill people on the streets to
help them move into housing. The REACH outreach specialist tracks by name in the program
database clients who have received outreach and records the disposition of the encounter. The
outreach specialist reports daily on the clients who are ready to enter the program, which must be
coordinated with clients identified by the HOT. Openings occur frequently and clients can be
housed temporarily in the safe haven while awaiting permanent housing. While REACH had an
official waiting list in the past, staff found that many people moved on or received services.
Staff report that they go “hunting” instead for the most vulnerable people who are not looking for
services.

After the client agrees to come into housing and a unit is available, the HOT accompanies the
client to REACH for screening and formal enrollment. Most clients stay at the safe haven during
this assessment period, which typically takes no more than 2 weeks because most clients are well
known to the outreach teams following several months of engagement. Some clients are
immediately placed into an SRO. REACH case managers monitor vacancies and prioritize
clients for movement from the safe haven to an independent apartment as soon as there is
availability. Case managers work closely with each client to find his or her housing of choice.
Infrequent program vacancies often mean that the outreach worker and the HOT must patch
together resources and referrals until there are openings in the program.

Housing and Services Following Enrollment
One case manager is assigned to each client at enrollment. There are no treatment requirements
other than meeting with the case manager biweekly. Case managers assess each client, develop a
service plan, and provide assistance to obtain needed basic services, including medical and
28

Chapter 3: Key Features of Housing First Study Sites
psychiatric services, crisis response, money management, self-help and community resources,
substance abuse intervention, education and counseling, vocational services, assistance with
entitlements, and support and education of family and significant others. Each case manager
carries a caseload of no more than 23 clients and works as part of a team of case managers dually
certified in mental health and substance abuse. The Community Research Foundation provides
employment, psychiatric, rehabilitative, and nursing services.

Case managers also help clients find housing of their choice. Because landlords or housing
providers for the safe havens, SROs, or Independent Living Facilities have strict lease
requirements regarding substance use, REACH clients experience frequent moves before
achieving housing stability. Case managers work closely with landlords and clients to preserve 
housing whenever possible. If problems cannot be resolved, alternative housing is found. Once
enrollment in REACH is accomplished, case managers work with clients to follow up with them
regardless of where they move. Team members visit clients within 72 hours of a psychiatric
placement and dispatch the outreach team to locate clients if they have returned to homelessness.
Community Research Foundation staff work in the evenings to follow up with clients to ensure
that their needs are met. If an absence lasts longer than 90 days, a client may be disenrolled from
the program, but may return, although not necessarily to the same apartment or housing unit.

CROSS-SITE ANALYSIS OF HOUSING FIRST FEATURES

The brief site descriptions above provided information about each of the Housing First
programs’ background, the population they serve, the types of housing offered, clients’
transitions from homelessness to living in permanent housing, and the provision of services to
address mental illness and substance use, as well as to maintain housing after entering the
program. Exhibit 3–1 provides a summary of program features across the Housing First
programs. The following sections compare and contrast the features of the Housing First
programs.

29

Chapter 3: Key Features of Housing First Study Sites
Exhibit 3–1. Program Features
Feature DESC Pathways to Housing REACH
Year
established
1994 1992 2000
Population
served
Serves 306 mentally ill, substance
dependent, homeless individuals
(50% co-occurring disorders).
Majority of clients were chronically
homeless. 30% from the streets, 70%
from “wet” emergency shelters.
Serves 450 mentally ill, substance
dependent, homeless individuals
(90% co-occurring disorders). 25%
from psychiatric hospitals, 75% from
streets or shelters.
Serves 259 mentally ill, substance
dependent, homeless individuals
(70% co-occurring disorders).
90% from streets or shelters, 10%
from crisis houses.
Outreach and
referral
Outreach team identifies and places
2–3 clients per month. HOST works
both streets and shelters. DESC
maintains a waiting list.
Community referrals and Pathways to
Housing outreach identify and place 5
or 6 clients each month. Funders
identify referrals for Westchester
County and Brooklyn ACT teams.
HOT and REACH outreach
specialist identify and place 5 or 6
clients each month.
Housing
placement
No sobriety or treatment
requirements. Standard lease
requirements. Client signs lease.
SROs have no time limits. Safe
haven has 18 month limit, but clients
may move to an SRO. Units held 90
days for temporary absences.
No sobriety or treatment
requirements. Standard lease
requirements. Pathways to Housing
signs lease. No time limits. Housing
considered permanent. Units held 90
days for temporary absences.
No sobriety or treatment
requirements. Landlords and
leases have requirements. Safe
haven has curfew and sobriety
requirements. Client signs lease.
No time limits. Housing
considered permanent. Units held
90 days for temporary absences
Housing choice Housing owned or controlled by
DESC: 3 SRO buildings and 1 safe
haven. Units are single occupancy
apartments with private baths.
Clients offered little choice in type of
housing.
Scattered-site apartments in private
buildings. Clients have choice of up
to 3 apartments.
Various: SRO, safe haven,
Independent Living Facilities,
Board and Care, scattered-site
apartments. Private landlords and
community partners own or control
housing. Clients offered some
choice in type of housing.
Service model Housing and clinical case managers
coordinate services. Each housing-
based case manager has caseload of
34 clients. Shift change meetings,
telephone contact, and on-line data
system coordinate services and track
clients’ status. Clinical case
managers make referrals to DESC
psychiatrist and substance abuse
treatment professionals.
Neighborhood-based, 9-member ACT
team carries caseload of 60–70
clients. Daily team meetings to
discuss clients’ status and determine
which team member(s) should
respond.
Team of case managers dually
certified in mental health and
substance abuse. Team meetings
daily to coordinate services
available 24/7. Case manager
caseload is 23 clients. Nurse
practitioner, psychiatrist, and
vocational services provided by
Community Research Foundation.
Separation of
housing and
services
No—on-site staff provide property
and case management. DESC
clients occupy all units in buildings.
DESC owns or controls units.
Yes—ACT team members visit
clients in home. Clients occupy no
more than 10% of building. Private
landlords own or control housing.
Yes—case managers visit clients
in community. Safe haven is
100% REACH clients. REACH
clients occupy 10–20% of SROs.
Private landlords own or control
housing.
Low Demand Yes. Yes. Yes.
Representative
payees
Not required. Encouraged, with exceptions. Not required, but common.
Program
funding
Housing—HUD SHP, Section 8
Moderate Rehabilitation SRO
Program. Services—HUD Service
Coordinator, and HOPWA programs,
PATH grants, Medicaid reimbursed
through King County, Washington.
Housing—state rental subsidies,
PATH grants, Shelter Plus Care,
HUD SHP. Services—state-funded
ACT team service dollars, Medicaid
reimbursement, Westchester County
Department of Social Services.
Housing—state-funded AB 2034
grant, 100 San Diego Housing
Authority project-based assistance
subsidies, Shelter Plus Care,
tenant SSI income. Services—
Medicaid reimbursement.
30

Chapter 3: Key Features of Housing First Study Sites
Population Served
All of the Housing First programs selected for this study provide services for the hardest-to-serve
segment of the homeless population—individuals with mental illness and often co-occurring
substance-related disorders. The majority of these individuals also meet the HUD definition of
chronic homelessness. Frustrated by watching these clients enter housing and then cycle back
into homelessness, Pathways to Housing and DESC developed permanent supportive housing
programs, in 1992 and 1994 respectively, and adopted their own treatment approaches. REACH,
created in 2000 with state grant monies, arose as a collaboration with the San Diego County
Mental Health Services Division to house homeless people with mental illness living on the
streets, many of whom were at risk of displacement by the building of a new sports stadium in
downtown San Diego.
43

The programs target individuals who have been living predominately on the streets or in other
public spaces and have been frequent users of systems such as psychiatric hospitals, hospital
emergency departments, and the criminal justice system. Program staff members describe their
services as designed for “treatment resistant” clients.

Outreach and Referral
Each of the Housing First programs in this study provides some direct outreach to locate and
engage potential clients. At DESC, the agency’s own outreach workers identify the majority of
enrollees, although a few come through AIDS services providers. DESC outreach workers look
for the most impaired, most vulnerable people on the streets. A DESC staff member stated that,
“HOST is looking for people who are not looking for us.” Similarly, REACH referrals consist
largely of persons identified by the San Diego Police Department HOT, which consists of
uniformed police officers and mental health counselors who provide outreach services in the San
Diego communities where homeless people congregate. Pathways to Housing staff provide
some outreach, but most referrals to Pathways to Housing are from community agencies that
have contracted with Pathways to Housing to provide housing to their homeless clients, such as
Westchester County Department of Social Services and state and county psychiatric hospitals.

All three study sites were at full capacity at the time of this study. To address ongoing housing
needs in the community, each program had some method to prioritize new referrals. REACH
and DESC use a waiting list system whereby they identify clients who are living in shelters or on
the streets and offer housing as it becomes available. During the study period, Pathways to
Housing expanded to serve new enrollees under two HUD permanent supportive housing
grants.
44
Psychiatric discharges also account for many of the new enrollments, particularly from
Kingsboro Psychiatric Center and Kings County Hospital to the Brooklyn ACT team.

43
Telecare Corporation provided integrated services for homeless people with mental illness in two of the AB 2034
pilot counties: Stanislaus County and Los Angeles County.
44
Pathways to Housing provides supportive housing and services under two grants funded by HUD. Project Release
provides permanent supportive housing for former inmates in a jail diversion program for the Center for Alternative
Sentencing and Employment Services (CASES) Nathaniel project. The KEEPing Home program provides
permanent supportive housing for former inmates who are sent to continue methadone treatment at the Key
Extended Entry Program (KEEP) of the Narcotics Rehabilitation Center (NRC) of Mt. Sinai Hospital, located in
East Harlem.
31

Chapter 3: Key Features of Housing First Study Sites
Housing Placement
The key feature characterizing housing placement in each of the study sites is that the programs
offer housing first without requirements for treatment or sobriety. Moreover, this housing is
viewed as permanent. Most housing agreements have requirements regarding visitors, disruptive
behavior, or substance use; however, program staff make it clear to clients that the program will
support them to maintain their housing permanently. In more traditional programs, clients may
be required to demonstrate a period of sobriety or compliance with treatment in a transitional
housing setting prior to entering permanent housing.

Enrollment occurs at the time that the client signs the lease and formally moves into a Housing
First program unit. The timing of the lease signing and entering housing varies across programs
and clients. For example, depending on level of functioning, clients at DESC may enter an
apartment at the safe haven first and not sign the housing agreement until later. At Pathways to
Housing and REACH, the availability of a funding source or new unit triggers the assessment
process. Case managers conduct assessment interviews and secure client agreement to sign a
lease before they move into their housing. At REACH and Pathways to Housing, this enrollment
step is necessary because referrals come from outside agencies. Most of the referrals to REACH
come from the HOT and REACH program staff must screen for severity of mental illness and
determine if the client is agreeing to enter housing voluntarily.

A portion of new program enrollees at both DESC and REACH are placed first into safe
havens.
45
Both DESC and REACH reported less choice and more structure in the housing
offered at enrollment, but most clients who spoke with the study team reported that it was
preferable to living on the streets. Even though the safe haven placement may be transitional,
clients in both programs do move on to one of the permanent housing options offered by both
programs. Thus, the housing commitment is permanent even if the initial placement is not.

The most important feature of the Housing First programs is that the housing is permanent.
Disruptions in housing may occur due to a client’s behavioral problems resulting from substance 

abuse or psychiatric decompensation; a client may lose his/her unit but not his/her housing as a
result. Typical examples of housing problems include failure to upkeep the apartment or
personal hygiene, flooding, hoarding, excessive noise, or other behavioral problems. In some
cases, the client may request changing apartments due to drug activity in the apartment building
or imaginary fears due to hallucinations. Across the three study sites, clients experience
temporary program departures, most frequently for short stays in psychiatric hospitals or short
periods of time on the streets. During these temporary departures, which usually do not exceed
90 days, apartments are held for the clients’ return. (See Chapter 5 for a discussion of housing
tenure for the study sample.)

45
Out of a total of 29 REACH clients who participated in this study, 31 percent (n = 9) stayed in the safe haven for a
range of five nights to up to 12 months, with the majority (n = 6) of clients staying less than three months. At
DESC, five out of the 25 study participants stayed at the safe haven for an average length of stay of 10.2 months.
32

Chapter 3: Key Features of Housing First Study Sites
Client Perspective on Housing Placement
The clients who participated in focus groups during the site visits to each of the study sites made
generally favorable comments about their housing.
46
At DESC, the features that these clients
liked about their housing included tangible aspects, such as the privacy offered by individual
apartments and amenities such as laundry facilities, television, and meals. They also cited less
tangible features, such as feeling “at home,” being independent, and having a social life. The
negative comments came primarily from one focus group participant, a former state hospital
resident, who did not like living with a large number of people with mental illness. “It’s still a
nuthouse,” he complained.

During the focus groups at Pathways to Housing, clients reported that they would have been
grateful to take anything as an alternative to living on the streets: “I thought it was too good to
be true,” or “If they had offered me an apartment where my life was in danger every time I
opened the door, I would have taken it.”

During the focus groups at REACH, clients indicated that there is a progression to be able to
enter a scattered-site unit—“Something better is on the way…if you stick with it.” This client
described his experience of moving into housing as, “For me it happened really fast…I spent two
weeks in a crisis house and then I went to the Metro Hotel for three months. It was noisy and I
didn’t like it, so I got independent living in a studio apartment in Old Town, but I still dream
about sleeping on the streets.” Most clients in the focus group said that there were few housing
choices, but expressed little dissatisfaction. Only those living in the Metro Hotel, one of the
SRO sites, expressed dissatisfaction.

Regarding housing choice, the responses of focus group participants were mixed. One client
stated that his housing was “not imposed, but REACH directed me.” Another stated, “I didn’t
care, I trusted REACH.” A third client reported, “I took what was offered, but now I’m working
on getting another place.”

Housing Choice
Pathways to Housing places clients immediately (or nearly immediately) from the streets into
permanent, scattered-site apartments. The program generally offers clients a choice among two
or three apartments. However, Pathways to Housing may not be able to offer clients choice of
neighborhood locations due to lack of vacancies or the program’s determination that a client
requires proximity to an ACT team office for monitoring.

Both DESC and REACH provide a contrast to the Pathways to Housing approach to housing
choice. DESC maintains three SRO buildings and one safe haven. Because DESC owns or
leases the program housing offered, DESC has greater control over the housing structure, but
offers clients fewer housing choices. However, Pathways to Housing neighborhood offices and
DESC’s centralized location offer clients and case managers an ease of accessibility for
monitoring and assistance that clients may want and need.

46
The study team conducted two focus groups at DESC on May 23, 2005 and May 24, 2005; three focus groups at
Pathways to Housing on June 1, 2005 and June 2, 2005; and two focus groups at REACH on May 18, 2005. The
methodology for these focus groups and the discussion guide used to prompt the discussions may be found in
Appendix A to this report.
33

Chapter 3: Key Features of Housing First Study Sites
When REACH enrolls clients, it places some of them immediately into a highly structured safe
haven, which is not operated by REACH. From the safe haven, case managers work with the
clients to help them choose among an array of housing options, including SRO units, Board and
Care Facilities, Independent Living Facilities, or scattered-site apartments. While REACH offers
some choice in housing options, the availability of independent scattered-site apartments is
limited and turnover is infrequent. Because the REACH case managers are located in one
centralized location and the clients’ housing may be located throughout the city, transportation
can be challenging. Clients are offered bus passes and case managers use their personal vehicles
to visit clients in their housing units and to assist them in getting to needed appointments.

Service Model
The three Housing First programs provide coordinated and integrated case management services
using somewhat different service delivery models. In each program, case managers provide
services in the community where the client lives. While recovery from mental illness and
substance abuse takes many years, staff at all three Housing First programs believe that recovery
is possible. With their years of experience supporting the hard-to-serve mentally ill homeless
population, staff believe that recovery is possible.

Only Pathways to Housing has ACT teams. These interdisciplinary teams are modified from the
original ACT team concept to include a supported housing component based on the Housing
First approach.
47
The primary goals of ACT are to enhance the client’s community adjustment,
decrease time spent in institutions, and prevent the development of a chronic “patient” role.
Pathways to Housing has six ACT teams that provide a range of intensive clinical, rehabilitation,
and support services to clients in their neighborhood areas. The interdisciplinary teams are
available 24 hours a day, 7 days a week to monitor and respond to the needs of 60–70 clients.
The ACT teams spend 80 percent of their time in the community assisting clients to adapt to
their homes and neighborhoods and emphasize home visits and clinical interactions. The ACT
team coordinates and monitors work with the clients through daily team meetings.

Achieving the ideal mix of professional staff required for a true ACT team model is challenging
and costly. DESC and REACH use a team-based approach that replicates many of the strengths
of the ACT team model. In both programs, the interdisciplinary services provided by an ACT
team are available, but are not all provided by members of a treatment team. At DESC, clinical
services are provided by the licensed treatment programs operated by other divisions. At
REACH, another contractor provides these services.

The REACH model most closely resembles the Pathways to Housing ACT team approach in
terms of providing services to the clients in their own homes at least twice a month. However,
REACH caseloads are larger (23 clients per case manager) and the program covers a larger
geographic area than Pathways to Housing ACT teams—REACH covers the entire San Diego
area, while Pathways to Housing has a separate ACT team for each neighborhood. The
Community Research Foundation partners with REACH to provide medication management and
psychiatric and employment services. Because these services are provided through another
contractor, case coordination is not a seamless process. Although REACH does not currently
have an ACT team, it is striving toward that goal.

47
The original ACT teams were developed in Madison, Wisconsin, and are described in Stein and Test (1980).
34

Chapter 3: Key Features of Housing First Study Sites
Clients in the focus groups expressed positive feelings for REACH case management services:

• “They want to know all your problems and then they deal with everything fast. They take
over the thinking process. You don’t have to think about it.”

• “The others [programs] have too many rules. There are no threats here.”

• “REACH told me I would never be homeless again.”

Medication compliance is encouraged but not required in all three programs. However, the
approach to medication management across the programs provides a useful comparison in an
important area of client functioning. In both the Pathways to Housing and REACH models, a
nurse practitioner, who is a member of the treatment team, assists the client in learning to
package and then take the medications independently.
48
The process begins with the nurse
assisting the client to package the medication and providing education about the medication,
followed by frequent reminders to the client to take the medication. The level of assistance
gradually decreases as clients become ready to package and take medication independently. In
the Pathways to Housing and REACH models, improvement in medication management is
demonstrated by clients regularly picking up, packaging, and taking their medications
independently and without reminders. However, if medication management becomes a problem,
it may be several days or even weeks before the client’s symptoms or behavior indicate that he or
she is decompensating.

The advantage of the DESC model is that services are on site so that case manager and client
contact can occur daily. At DESC, program staff oversee a similar process of increasing client
independence in medication management, but the process can be much more closely monitored
because staff are on site to witness medication compliance 24 hours a day, 7 days a week.

Monthly Service Contacts
Given the stress of entering housing from the streets or shelter, clients require considerable
support in the community when they first enter housing. In all three Housing First programs, the
average number of monthly service contacts was highest during the first 3 months following
enrollment. It is expected that when a client is first enrolled there is a higher frequency of
contacts, initiated by both staff and clients, to assure community adjustment. However, the data
collection instruments used for this study did not collect information regarding the nature of the
contacts. Clients at Pathways to Housing received the smallest average number of monthly
service contacts, due in part to the scattered nature of program housing. DESC staff provided the
highest average number of monthly service contacts because services are located on site.
REACH clients made a greater number of temporary moves to other living environments, such
as the streets or jail, and moves into other permanent housing, and, as a result. the average
number of service contacts was higher than Pathways to Housing.
49
(See exhibit 3–2.)

48
Packaging medications refers to clients’ practice of keeping medications at an agency’s office and visiting the
office weekly or monthly to assemble enough medication for the following week or month. The client then takes the
medication independently.
49
Case managers at each of the Housing First programs reported the number and type of service contacts provided
each month to clients enrolled in this study. Service contacts were counted by days—one service contact was
35

Chapter 3: Key Features of Housing First Study Sites
Exhibit 3–2. Average Service Contacts per Client per Month, by Program

50.7
38.1
33.6
32.9
28.8
8.8 8.7
7.5 7.8 7.2
13.6
8.3 8.2
7.2 7.7
0
10
20
30
40
50
60
136912
Month
N
um
ber
of
c
ont
ac
t
s
DESC Pathway s to Housing REACH

Separation of Housing and Services
Although none of the Housing First programs requires treatment regimens as a condition of
housing, the location of and type of services may affect a resident’s success in permanent
housing. Successful housing retention is predicated on the notion of offering a comprehensive
array of supportive services that are individualized or client driven and provided within the
community where the client lives. The functional separation between housing and services
provides critical leverage in treatment to help the client work toward recovery and maintain his
or her apartment. While the client will not be disenrolled from any of the Housing First
programs for problems caused by behaviors related to substance abuse or mental illness, the
client will suffer the consequence of losing the apartment due to landlord complaints.

In New York City and San Diego, the team approach is important to providing services
effectively across widely dispersed housing units. In New York City, the six ACT teams
associated with Pathways to Housing are located in the neighborhoods where clients live.
REACH is headquartered centrally and must cover clients living throughout San Diego, but
primarily downtown. Each morning teams at REACH and Pathways to Housing review the
status of all clients and any emergencies that may have occurred overnight and determine the
best way to address these issues.

For these programs, the separation of housing and services across large geographic areas is
challenging, but the 24 hours-a-day, 7 days-a-week availability of the case management staff to
solve problems in the client’s housing helps to make it work. For example, when a client causes
a housing problem, case management staff are committed to responding immediately to both

defined as one service provider having contact at least one time with a client during a given day. If the same
provider had multiple contacts with a client during one day, the number of service contacts reported was one.
Exhibit 3–2 displays the average number of monthly service contacts, per client, for the entire sample at each
Housing First program. Data are presented for months one, 3, 6, 9, and 12 of client housing tenure. Each average
was computed using the number of clients in each program during that particular month. In general, the average
number of monthly service contacts was greater for clients who left the program within the first 12 months than for
clients who remained in the program for 12 months at both DESC and Pathways to Housing. At REACH, the
average number of monthly service contacts was greater for those who stayed in the program for 12 months.
36

Chapter 3: Key Features of Housing First Study Sites
landlord and client concerns, attempting to find a remedy. The fact that the housing is provided
by private landlords, rather than the Housing First program, also means that case managers are
not responsible for enforcing leases and can focus their efforts on resolving housing problems so
that clients remain housed.

Landlord recruitment and retention largely hinges on successful and responsive attentiveness to
landlords’ concerns. This is particularly important to maintaining the safe haven, SRO, and
scattered-site apartments in the San Diego area. The safe haven and the Metro Hotel have very
strict lease requirements regarding substance use. In the case of the safe haven, which is funded
by the AB 2034 grant, the landlord can be more lenient and will work with the client and case
manager to resolve any housing problems that may arise due to substance abuse. A series of
crises and the arrival of a new property manager at the Metro Hotel triggered an increased level
of concern about problems stemming from substance abuse. In response to the new manager’s
strict “zero tolerance” policy, case managers moved several clients to other locations but kept
them in the program.

Regarding scattered-site apartments, while a landlord may be supportive of REACH, housing
complaints may escalate to neighborhood or community commissioners, resulting in political
pressures to place clients in more restrictive housing when they in reality have a greater ability to
function independently. Because there is a waiting list for scattered-site apartments, these units
are occupied by less-impaired REACH clients, usually those who have done well at the SRO
hotels. Program staff concede that, while they believe that clients who are not deemed ready for
housing have the ability to function well in independent housing, “there is a worry about putting
someone in an apartment with a landlord who has been open to housing clients and it not
working out.”

Landlord recruitment in the Pathways to Housing approach is predicated on the program signing
the lease, so that the landlord can hold the program accountable to the lease requirements. The
policy of Pathways to Housing is to be responsive to landlord concerns. Pathways to Housing
staff also help clients learn to become good neighbors by taking them to meet the building
superintendent and making the superintendent aware of numbers to call in case of any housing
concerns.

DESC’s model is quite different and arises from the housing type and the service resources
DESC brings to the program. DESC controls the housing and provides on-site property case
management to enforce lease requirements. The housing-based case managers develop service
plans, with input from the client and the client’s clinical mental health or substance abuse case
managers. The service plans emphasize goals and outcomes that will help the client succeed in
housing. These plans are meant to supplement, not duplicate, the clinical case manager’s work
with the client. In addition, clients usually have daily interaction with the housing-based case
managers. While clients could lose their housing for lease violations, program disenrollments
are rare and only for the most egregious of lease violations (e.g., physical violence or assault
with a deadly weapon).
37

Chapter 3: Key Features of Housing First Study Sites
Low Demand
The Housing First model provides a range of services to help clients retain housing. For
example, DESC case managers help new clients move into their homes and adjust to their new
housing. REACH and Pathways to Housing also help clients acclimate to their new
neighborhoods. These activities include showing clients where local markets are located,
providing them with cleaning supplies, and introducing them to local transportation services. At
each of the Housing First programs, case managers also intervene with clients to address
behaviors that may lead to a loss of housing. These behaviors may be related to one’s mental
illness, drug or alcohol use, or lack of experience living indoors.

Low demand is a key attribute of the treatment approach utilized across all three Housing First
programs. Low demand is an intervention designed to reduce harm, or risk of harm, associated
with ongoing addictive behaviors, without requiring abstinence. Following are two examples of
the low demand approach.

• During an apartment visit in response to a landlord complaint of suspected drug activity, the
case manager may notice that a “friend” has moved in or is staying overnight with a client.
The case manager might suspect that the friend is actively using or selling drugs. As a result,
the case manager may visit the client more frequently to remind the client that overnight
visitors are a lease violation that could jeopardize his or her housing.

• Drug use escalation may result in the client spending all of his or her money on drugs,
leaving nothing for food. If the client has chosen the Housing First program as representative
payee, the case manager may intervene as money manager, making food purchases and
significantly reducing the client’s access to cash until the drug use subsides.

Focus group participants confirmed that participation in services was not a condition of their
staying in housing. When clients first enter the REACH program, placements in either the
safe havens or the Metro Hotel involve adherence with rules regarding substance abuse. At
REACH, the focus group participants indicated that case managers were supportive, even
when you “relapsed.” One REACH client indicated she felt really bad about relapsing, when
they had helped her so much: “I feel guilty; I want an outside counselor so I don’t have to tell
REACH about relapses.” At DESC, one client described his case manager’s approach: “They
listen, and then they watch you to see if you do what you said.” Another commented on
participating in Alcoholics Anonymous or Narcotics Anonymous meetings, noting, “They
encourage you, but there’s no pressure.” Another, a long-time alcoholic, unapologetically
asserted, “I’ve been drinking all my life…and I’m not going to quit.”

Representative Payee
Representative payees can help clients better manage their money and ensure that rent payments
are made on time. All of the Housing First programs have clients who have a designated
representative payee. Among the clients who enrolled in this study, REACH clients have
representative payees less frequently than clients in Pathways to Housing and DESC.
Approximately 85 percent of clients at DESC (n = 21) and Pathways to Housing (n = 22) had a
representative payee for at least one month during the first 12 months in the program compared
with 35 percent (n = 10) at REACH. Further, clients at DESC (29 percent of those with a
38

Chapter 3: Key Features of Housing First Study Sites
representative payee) and REACH (50 percent of those with a representative payee) frequently
designated a local nonprofit as their representative payee.

Most Pathways to Housing clients allow a program staff member to become their representative
payee; however, it is not a requirement at program enrollment. Rather, it becomes a
developmental step in recovery as clients demonstrate increasing ability to manage their affairs
of daily living and independence. Many clients at Pathways to Housing have a representative
payee at enrollment, but eventually manage their own money. Having the Housing First program
as representative payee would appear to give the program leverage, however, many clients in the
study had someone other than the program as their representative payee. Regarding of the
influence of having a representative payee, research on this issue in the three study sites and
other programs is underway.
50

The Pathways to Housing ACT team case managers use evidence-based practice tool-kits
designed to help clients develop self-sufficiency skills to live independently, especially in the
areas of activities of daily living, money management, and medication management. If a client
does not have a representative payee, the case manager may initially provide a great deal of
assistance in reminding clients to pay their rent with their monthly checks. As the client
demonstrates progress in making good decisions, the case manager will gradually reduce the
assistance to allow the client to assume increasing independence in money management.

Program Funding
All of the Housing First programs require a combination of funding sources to cover both
housing and services. Sources of funding for housing consist of federal, state, local, and private
funding. At DESC, the four housing locations are funded by HUD programs, including SHP, the
Section 8 Moderate Rehabilitation SRO program, and the Low-Income Housing Tax Credit
program. Services are funded through HUD’s SHP, Service Coordinator grants, the Housing
Opportunities for Persons with AIDS (HOPWA) program, and Medicaid funds administered by
King County. Private fundraising also supports both housing and services. REACH receives both
state and local funding for housing, through a state-funded AB 2034 grant and San Diego
Housing Authority project-based housing subsidies. Services funds come through Medicaid
reimbursement and state-funded AB 2034 funding.

Forty-two percent of the total program funding for Pathways to Housing comes through the New
York State Office of Mental Health, which includes state-funded project-based Section 8
subsidies and state-funded ACT team service dollars, as well as federally-funded Projects for
Assistance in Transition from Homelessness (PATH) grants and Shelter Plus Care. Certain ACT
teams receive funding under special agreements or grants. The New York State Office of Mental
Health subsidizes the Brooklyn ACT team, which is participating in a research study on ACT
teams. The Westchester County Department of Social Services provides more than 10 percent of
program funding for staff salaries and rental subsidies for the Westchester County ACT team.
Sixteen percent of program funding for both housing and services comes from two HUD
supportive housing grants for Project Release and the Center for Alternative Sentencing and

50
P. Robbins and J. Monahan, Housing Leverage Pilot Study by the John D. and Catherine T. MacArthur
Foundation on Mandated Community Treatment.
39

Chapter 3: Key Features of Housing First Study Sites
Employment Services (CASES) jail diversion program.
51
Remaining program funding comes
through the New York City Department of Mental Health and private donations.

All three Housing First programs reported that certification for Medicaid reimbursement is
essential for program funding. Pathways to Housing became certified, most recently in 2003.
REACH receives both state and local funding for Medicaid billable program and services,
through the state-funded AB 2034 grant. DESC’s clinical treatment programs are certified. The
community case managers are Medicaid billable, but the housing case managers are not part of
the clinical program and therefore are generally not Medicaid billable.

The scope of work for this study did not call for an analysis of program costs, but each of the
three program sites offered a rough estimate of the annual per client cost of housing and services.
The costs of services reported seemed low and not comparable. In addition, staff report that
keeping people stably housed keeps them out of jails and hospitals and recent studies have found
this to be generally the case (Gulcur et al., 2003; Davis, Johnson, and Mayberg, 2003).
Therefore, the costs of Housing First programs may be offset by preventing the use of other more
costly community resources, but these offsetting savings were not reflected in the cost estimates
provided. Future research that would collect and analyze program costs and offsetting savings
would be valuable to assess the replicability of these programs.

CONCLUSIONS

The three Housing First programs share a commitment to serving homeless individuals who are
seriously mentally ill and have co-occurring substance-related disorders. They also share a
commitment to placing people in permanent housing and do not have service participation or
sobriety requirements. The service approaches emphasize helping clients remain stably housed.

Key differences among the programs are the type of housing offered (including the use of
transitional placements) and the structure for delivering services. The dispersed housing and
neighborhood-based ACT teams at Pathways to Housing offer consumer choice and intensive
services, but require a large network of landlords and support from the highly skilled
professionals that comprise the ACT team.

The DESC model, where the primary service provider also owns or controls the housing and
provides a high level of supervision, offers considerable latitude to respond to the challenges of
housing this population, but it minimizes community integration and limits client choice in
housing.

The REACH model poses certain challenges—the service provider does not own or control any
of the housing, case managers have sizeable caseloads, and the program is geographically
dispersed. However, REACH has the advantages of flexible state funding and Medicaid billable
services that allow the program to provide housing assistance, as well as community-based client
support.

51
The housing and services provided through this program are for clients being considered on a case-by-case basis
without a plan other than to be discharged into homelessness.
40

Chapter 3: Key Features of Housing First Study Sites
The following chapters review findings from client-level data collection at each of the three
Housing First programs. These findings address: (1) client characteristics, (2) housing tenure,
and (3) outcomes related to mental illness, substance use, and money management for a sample
of clients during their first year in the Housing First programs.
41

Chapter 3: Key Features of Housing First Study Sites
42

CHAPTER 4: CHARACTERISTICS OF HOUSING FIRST CLIENTS

Housing First programs are intended to target the hardest-to-serve homeless individuals who
have a serious mental illness, often with a co-occurring substance-related disorder, and typically
are resistant to entering housing. As one program staff member said, “We are looking for the
people who are not looking for us.” This chapter describes the study sample’s demographics as
well as levels of impairment related to mental illness and substance abuse at the time of
enrollment in the Housing First programs.

Case managers at the Housing First program collected information on clients’ baseline
characteristics and status. Demographic and client background information (e.g., family status,
criminal history, and employment experience) were based on the case manager’s knowledge of
the client and administrative records. Clinical assessments of the client’s mental health status
and substance use were based on the case manager’s professional judgment of each client’s
status at the time of entering the Housing First program.

The study sample included 25 clients at the Downtown Emergency Service Center (DESC),
26 clients at Pathways to Housing, and 29 clients at Reaching Out and Engaging to Achieve
Consumer Health (REACH), for a total sample size of 80 clients.
52
Study clients enrolled in the
three Housing First programs between June 2003 and August 2004, with two-thirds entering
between December 2003 and May 2004.
53
The chapter begins with a discussion of baseline
characteristics by Housing First program, and then follows with a discussion of variations in
baseline characteristics based on clients’ living situations prior to enrolling in the Housing First
program.

BASELINE DIFFERENCES BY HOUSING FIRST PROGRAM

The following sections address client characteristics at enrollment, client background, income
and benefits, psychiatric diagnoses and symptoms, substance abuse and treatment, and clients’
living situations prior to entering the Housing First program. Differences among the three
Housing First programs in each of these areas are highlighted. In addition, some contextual

52
The exhibits in this chapter provide both numbers (N) and percentages (%) of clients. While discussions are
based on percentages as informative groupings, the N’s are relatively small. Any generalizations to the Housing
First program as a whole should be made with caution. DESC confirmed the sample is generally similar to its
overall client population with the following exceptions: the agency’s overall population has a lower rate of previous
incarceration (21% for the program compared to 40% for the sample); a lower incidence of co-occurring disorders
(41% for the program compared to 68% for the sample); and a lower rate of substance abuse history (66% for the
program compared to 84% for the sample). Pathways to Housing confirmed that the sample is representative of the
larger program with the following exception: 42% of the sample entered the program from psychiatric hospitals,
which reflects the addition of funding from psychiatric hospitals to provide housing to homeless patients upon
discharge. REACH confirmed that the sample is representative of the larger program with the following exceptions:
the program has a greater proportion of black clients (25% of program compared to 17% of sample) and
nonHispanic clients (95% of program compared to 93% of sample); and clients of the program are more likely to be
employed than those in the sample (16% of program compared to 3% of sample).
53
Although clients included in the study sample entered the Housing First programs as early as June 2003, the
programs reported baseline data in June and July of 2004. Much of the baseline data was collected retrospectively.
43

Chapter 4: Characteristics of Housing First Clients
information is provided by comparing several of the study’s demographic findings with those
obtained in the National Survey of Homeless Assistance Providers and Clients (NSHAPC). This
survey, conducted in 1996, collected information from providers and clients across the country
(Burt et al., 2001).

Client Characteristics at Enrollment
The typical client at the Housing First programs was a white male between the ages of 36 and 50
years. More than three-fourths of the clients in the sample were males. REACH had more
female clients than the other programs—34 percent (n = 10), compared to 16 percent (n = 4) at
DESC and 15 percent (n = 4) at Pathways to Housing. REACH also had more veterans than the
other programs. (See exhibit 4–1.)

Exhibit 4–1. Client Characteristics at Enrollment, by Program
DESC
(N = 25)
Pathways to
Housing
(N = 26)
REACH
(N = 29)
Total
(N = 80) Client Characteristics
N % N % N % N %
Gender: female 4 16% 4 15% 10 34% 18 23%
Client had children younger than 18 years 6 24% 2 8% 7 24% 15 19%
Veteran 2 8% 1 4% 5 17% 8 10%
Data source: Baseline Data Collection Instrument

Pathways to Housing had the oldest clientele—54 percent (n = 14) of its clients were 51 years or
older. Not surprisingly, the clients at Pathways to Housing were also least likely to have children
under the age of 18 years. REACH served the youngest population, as more than one-third
(n = 10) of its clients were age 35 years or younger at enrollment. (See exhibit 4–2).

A comparison of findings related to age from the NSHAPC indicate that a larger percentage of
the clients served by the Housing First programs in this study are older than the population of all
currently homeless clients represented in the NSHAPC survey.
54

54
The age categories used by the NSHAPC were different than those presented in exhibit 4–2. The study team
conducted an additional analysis using the same age categories for the Housing First clients as those included in the
NSHAPC. Clients included in the NSHAPC were in the following categories: 37 percent were age 34 years or
younger, 55 percent were age 35–54 years, and 8 percent were age 55 years and older. For the present study, the
percentages within the same age categories were 24 percent, 53 percent, and 24 percent.
44

Chapter 4: Characteristics of Housing First Clients
Exhibit 4–2. Client Age at Enrollment, by Program
55

(N = 25 for DESC, N = 26 for Pathways to Housing, N = 29 for REACH)

12%
(3)
23%
(6)
34%
(10)
52%
(13)
23%
(6)
52%
(15)
36%
(9)
54%
(14)
14%
(4)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
DESC Pathways to Housing REACH
35 years or younger 36–50 years 51 years or older

Pathways to Housing had the highest percentage of clients who were members of minority
groups—one-half (n = 13) were black and about one-fifth (n = 5) were Hispanic. At DESC, one-
fifth (n = 5) of the clients were black and 4 percent (n = 1) were Hispanic. At REACH, 17
percent (n = 5) of the clients were black and 7 percent (n = 2) were Hispanic. More than one-half
of clients were white at both DESC (n = 16) and REACH (n = 16). At these programs, clients of
an “other” race who were non-Hispanic were Asian, Hawaiian, and Native American.
(See exhibit 4–3.)

Exhibit 4–3. Client Race and Ethnicity, by Program
(N = 25 for DESC, N = 26 for Pathways to Housing, N = 29 for REACH)

0%
55%
(16)
31%
(8)
64%
(16)
17%
(5)
50%
(13)
20%
(5)
7%
(2)
19%
(5)
4%
(1)
21%
(6)
12%
(3)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
DESC Pathways to Housing REACH
White, nonHispanic Black, nonHispanic Hispanic, any race Other, nonHispanic

55
Note that only three clients are older than 62 years, one at DESC and two at Pathways to Housing.
45

Chapter 4: Characteristics of Housing First Clients
Client Background
In addition to homelessness, the clients enrolled in this study faced challenges including low
levels of educational attainment, limited work histories, criminal records, and health problems.
Across the programs, 39 percent (n = 31) of clients did not receive a high school diploma. This
finding is comparable to that of the NSHAPC—38 percent of the population of service-using
homeless people had received less than a high school diploma (Burt et al., 2001). Clients
enrolled in Pathways to Housing had the lowest educational attainment among the programs—
only one client continued his education past high school, and more than 60 percent (n = 16) of
clients did not graduate from high school or receive their GED. (See exhibit 4–4.)

Across the three programs, about one-third of clients did not have a history of employment.
Pathways to Housing clients were far less likely to have ever been employed than clients of the
other programs—85 percent (n = 22) of Pathways to Housing clients had no employment history.

REACH clients were far less likely than clients at the other Housing First programs to have a
chronic medical condition such as diabetes, heart disease, asthma, or a mobility impairment.
This may be due to the fact that REACH serves a relatively younger clientele. Across the sample,
only six clients were HIV-positive or had AIDS and related diseases—five clients at DESC
(where one of the buildings serves primarily people with AIDS) and one client at Pathways to
Housing.

Exhibit 4–4. Client Background at Enrollment, by Program
(N = 25 for DESC, N = 26 for Pathways to Housing, N = 29 for REACH)

28%
(8)
62%
(16)
28%
(7) 17%
(5)
85%
(22)
8%
(2)
21%
(6)
54%
(14)
52%
(13)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
DESC Pathways to Housing REACH
Less than high school diploma No employment history Chronic medical condition

Clients at DESC and REACH had similar incidences of previous arrests and incarcerations,
while many fewer clients at Pathways to Housing had been arrested or incarcerated. A small
proportion of clients were on probation or parole at the time of enrollment: 8 percent at
Pathways to Housing; 12 percent at DESC; and 21 percent at REACH. (See exhibit 4–5.)
46

Chapter 4: Characteristics of Housing First Clients
Exhibit 4–5. Client History of Arrest and Incarceration, by Program
(N = 25 for DESC, N = 26 for Pathways to Housing, N = 29 for REACH)
62%
(18)
35%
(9)
68%
(17)
41%
(12)
27%
(7)
40%
(10)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
DESC Pathways to Housing REACH
Previous arrest Previous incarceration

The demographic and background characteristics of Pathways to Housing clients suggest a
frequently institutionalized population. These clients are older, have less education and
employment experience, and a lower incidence of prior arrest or incarceration. In fact, eleven
(42 percent) of the Pathways to Housing clients came from institutions; however nine of these
individuals were described by their case managers as being chronically homeless prior to
hospitalization. (See exhibit 4-14.)

Income and Benefits
Most of the clients in the study had some income at baseline. Two-thirds (n = 54) of clients had
gross monthly incomes greater than $500 at enrollment, while 15 percent (n = 12) had no income
at that time. Clients at REACH had the highest income at enrollment—55 percent (n = 16) of
REACH clients made more than $750 per month. (See exhibit 4–6.)

Exhibit 4–6. Client Monthly Income at Baseline, by Program
(N = 25 for DESC, N = 26 for Pathways to Housing, N = 29 for REACH)

21%
(6)
4%
(1)
19%
(5)
10%
(3)
28%
(7)
15%
(4)
14%
(4)
56%
(14)
58%
(15)
55%
(16)
12%
(3)
8%
(2)
0%
20%
40%
60%
80%
100%
DESC Pathways to Housing REACH
$0 $1–$500 $501–$750 $751–$1,000

47

Chapter 4: Characteristics of Housing First Clients
The incidence of clients’ receipt of income and benefits from federal and state programs
indicates some engagement with institutional support systems by the majority of clients at
enrollment.
56
Across the sample, 45 percent (n = 36) of clients received Supplemental Security
Income (SSI) at enrollment and 23 percent (n = 18) received Social Security Disability Income
(SSDI).
57
Only one client was reported as having earned income at enrollment. However, the
differences between categories of income are so narrow that it is impossible to draw any
significant conclusions.

In terms of non-income benefits, 35 percent (n = 28) of clients received subsidized health
insurance at enrollment, including Medicaid, Medicare, and veterans’ health insurance—twice as
many DESC clients received this benefit compared to clients at Pathways to Housing and
REACH. About one-half (n = 12) of DESC clients were receiving food stamps at the time of
enrollment, but this was less common at Pathways to Housing and REACH. DESC has an
agreement with the state of Washington to expedite SSI eligibility determinations for its
clients—DESC’s outreach mental health program can submit applications on behalf of clients
with state-approved assessment and diagnostic information. (See exhibit 4–7.)

Exhibit 4–7. Sources of Income and Benefits at Enrollment, by Program
DESC
(N = 25)
Pathways to Housing
(N = 26)
REACH
(N = 29)
Total
(N = 80) Sources of Income
N % N % N % N %
Income sources
SSI 13 52% 10 38% 13 45% 36 45%
SSDI 8 32% 2 8% 8 28% 18 23%
Other 6 24% 0 0% 4 14% 10 13%
Benefits sources
Subsidized health insurance 14 56% 7 27% 7 24% 28 35%
Food stamps 12 48% 1 4% 2 7% 15 19%
Unsubsidized health
insurance 0 0% 0 0% 5 17% 5 6%
Data source: Baseline Data Collection Instrument
Notes: Other sources of income included welfare income, veterans’ income, employment income, and income from a family
member and lawsuit settlement. Subsidized health insurance included Medicaid, Medicare, and veterans’ health insurance.
Income and benefits sources are not mutually exclusive.

56
At the conclusion of the 12-month data collection period, the study team requested that one of the programs
provide revised data on total monthly income at baseline, month 1, and month 12. The study team did not request
revised data for the sources of income and other benefits. The gross baseline income may not be correlated with the
sources of income and benefits for all clients at this particular Housing First program; however, the sources of
income and benefits reported by the programs at baseline provide an indication of the level of support that clients
receive from federal sources and other entitlements.
57
SSI is needs-based assistance for individuals with low or no income who are blind or disabled. SSDI is assistance
for disabled workers. It is possible to receive SSI and SSDI simultaneously; however, SSI only pays the difference
between the income one receives (including SSDI) and the benefit one is entitled to receive. Six clients in the study
sample received both SSI and SSDI at baseline.
48

Chapter 4: Characteristics of Housing First Clients
Psychiatric Diagnoses, Symptoms, and Impairment
Consistent with the Housing First priority of serving people with a serious mental illness, the
majority of clients tracked for this study had a psychiatric diagnosis and experienced impairment
related to psychiatric symptoms at the time they entered program housing. Across the sample,
91 percent (n = 73) of clients had an axis I diagnosis (five clients at DESC and two clients at
Pathways to Housing did not have a diagnosis).
58
Of these, 65 percent (n = 52) had a diagnosis
of schizophrenia or other psychotic disorders, with the highest incidence at Pathways to Housing
(n = 22, 85 percent). Mood disorders were more common at REACH than at the other two
sites.
59
In addition, DESC reported three clients with an axis I diagnosis other than
schizophrenia and mood disorders, including oppositional defiant disorder and personality
disorder. (See exhibit 4–8.)

Exhibit 4–8. Types of Axis I Diagnoses at Enrollment, by Program
(N = 25 for DESC, N = 26 for Pathways to Housing, N = 29 for REACH)

0% 0%
59%
(17)
85%
(22)
52%
(13) 41%
(12)
8%
(2)
16%
(4)
12%
(3)
0%
20%
40%
60%
80%
100%
DESC Pathways to Housing REACH
Schizophrenia or other psychotic disorders Mood disorders Other disorders

The extent to which clients had received treatment for their conditions varied across programs.
Nearly all Pathways to Housing clients with schizophrenia had been hospitalized in the past,
reflecting the high percentage of clients who came to Pathways to Housing from a psychiatric
hospital. DESC and REACH clients with schizophrenia were far less likely to have received past
treatment for psychiatric problems. Across the sample, 78 percent (n = 62) of clients were taking
psychiatric medications at the time of enrollment, with Pathways to Housing clients the most
likely to be taking medications. While all REACH clients had an axis I diagnosis, only
79 percent (n = 23) were taking psychiatric medications at enrollment.

58
The Diagnostic and Statistical Manual (DSM) of Mental Disorders, published by the American Psychiatric
Association, describes the diagnostic categories of mental disorders and a multiaxial assessment that includes five
axes. Axis I includes clinical disorders and other conditions that may be a focus of clinical attention—schizophrenia
and other psychotic disorders, mood disorders, anxiety disorders, and other conditions. Axis II diagnoses include
personality disorders and mental retardation. Axis III diagnoses include general medical conditions. Axis IV
diagnoses include psychological and environmental problems. Axis V is a scale to measure global functioning.
59
Mood disorders include depressive disorders, bipolar disorders (characterized by depressive and manic episodes),
and substance-induced mood disorders. Schizophrenia and other psychotic disorders include delusions or
hallucinations. Studies have found that homeless clients with mood disorders, rather than schizophrenia, have a
higher success rate in housing (Lipton et al., 2000; Tsemberis and Eisenberg, 2000).
49

Chapter 4: Characteristics of Housing First Clients
The majority of DESC and Pathways to Housing clients and all REACH clients experienced
psychiatric symptoms at enrollment. Approximately one-half (n = 4) of the Pathways to Housing
clients who did not experience any impairment related to psychiatric symptoms at enrollment
entered the program directly from a psychiatric hospital. More than one-half (n = 16) of REACH
clients were severely impaired by psychiatric symptoms.
60
(See exhibit 4–9.)

Exhibit 4–9. Psychiatric Symptoms and Impairments at Enrollment, by Program
Data source: Baseline Data Collection Instrument
DESC
(N = 25)
Pathways to Housing
(N = 26)
REACH
(N = 29)
Total
(N = 80)
Psychiatric Symptoms
and Impairments
N % N % N % N %
Currently taking psychiatric
medication
17 68% 22 85% 23 79% 62 78%
Psychiatric symptoms 19 76% 18 69% 29 100% 66 83%
Level of impairment related to psychiatric symptoms
None 6 24% 10 38% 0 0% 16 20%
Moderate 13 52% 12 46% 13 45% 38 48%
Severe 6 24% 4 15% 16 55% 26 33%
Notes: The “none” category under “level of impairment” includes clients with no psychiatric symptoms and clients with
psychiatric symptoms, but no impairment. Pathways to Housing had two clients at baseline with psychiatric symptoms, but no
impairment from those symptoms.

Substance Abuse, Treatment, and Impairment
Case managers at the Housing First programs reported information regarding their clients’
history of substance abuse prior to enrollment (exhibits 4–10 and 4–11), as well as current
substance abuse at the time of enrollment (exhibit 4–12). This section first discusses findings on
the history of substance abuse, followed by substance abuse at the time of enrollment.

The majority (n = 60, 75 percent) of clients had a history of abusing alcohol or drugs prior to
enrollment. Forty-five percent (n = 36) of clients across the Housing First programs had a
history of abusing both drugs and alcohol, while about one-fifth (n = 15) abused alcohol only and
about one-tenth (n = 9) abused drugs only. A history of dual alcohol and drug abuse was most
common at DESC (n = 14, 56 percent) and least common at REACH (n = 11, 38 percent) (See
exhibit 4–10.)

60
The data collection instruments collected two types of information regarding level of impairment related to mental
illness and substance abuse. The first type was whether the client experienced symptoms related to mental illness
(or substance abuse). The second type was the severity of symptoms, ranked on a three-point scale—none,
moderate, and severe. Case managers that worked with the clients reported each type of information, based on
professional judgment. See Appendix A for additional information about study methodology and the data collection
instruments.
50

Chapter 4: Characteristics of Housing First Clients
Exhibit 4–10. Type of Substance Abuse Prior to Enrollment Across Programs (N = 80)

No history of
substance abuse
25% (20)
Drug abuse only
11% (9)
Alcohol abuse only
19% (15)
Drug and alcohol
abuse
45% (36)

Among the entire sample, 40 percent (n = 34) had been treated at some point for substance
abuse. At Pathways to Housing, all clients with a history of substance abuse had been treated for
it, while only 14 percent (n = 4) of REACH clients had received treatment. DESC reported
40 percent (n = 10) of clients received treatment. These differences could be partially explained
by the finding that the sample of Pathways to Housing clients were older and more likely to have
been previously institutionalized. (See exhibit 4–11.)

Exhibit 4–11. History of Substance Abuse and Treatment, by Program
(N = 25 for DESC, N = 26 for Pathways to Housing, N = 29 for REACH)

66%
(19)
77%
(20)
84%
(21)
14%
(4)
77%
(20)
40%
(10)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
DESC Pathways to Housing REACH
History of substance abuse History of treatment

At the time of enrollment, one-half (n = 40) of clients were using drugs or alcohol, as shown in
exhibit 4–12. More than one-half of DESC (n = 14) and REACH (n = 16) clients were using
alcohol or drugs at the time of enrollment, while fewer Pathways to Housing clients were doing
so (n = 10, 38 percent). Compared to the common history of the dual abuse of alcohol and drugs
(45 percent across the sites), far fewer were doing so at enrollment (13 percent). Of those using
51

Chapter 4: Characteristics of Housing First Clients
substances at enrollment, 40 percent were severely impaired, with REACH clients being the
most impaired. A possible explanation for the lower reported engagement in substance use could
be that these data were collected at program enrollment, when the case manager has the least
knowledge of the client’s typical behavior or level of impairment. An additional explanation
could be that many clients were leaving institutional settings; however, as discussed later in this
chapter, more than one-half (n = 9) of those leaving institutional settings were using substances
at enrollment.

Exhibit 4–12. Substance Use and Impairment at Enrollment, by Program
DESC
(N = 25)
Pathways to Housing
(N = 26)
REACH
(N = 29)
Total
(N = 80)
Substance Use and
Impairments
N % N % N % N %
Client used substance(s) at
enrollment
14 56% 10 38% 16 55% 40 50%
Substances used (of those who used substances at enrollment)
Alcohol only 5 20% 4 15% 7 24% 16 20%
Drugs only 2 8% 5 19% 2 7% 9 11%
Alcohol and drugs 7 28% 1 4% 7 24% 15 19%
Impairment from substance use (of those who used substances at enrollment
None 4 16% 1 4% 0 0% 5 6%
Moderate 4 16% 6 23% 8 28% 18 23%
Severe 5 20% 3 12% 8 28% 16 20%
Unknown 1 4% 0 0% 0 0% 1 1%
Data source: Baseline Data Collection Instrument
Notes: Impairment from substance use shows, for all clients with substance use at enrollment, the level of impairment caused by
that use. If a client used both alcohol and drugs, the higher level of impairment is noted.

Co-Occurring Disorders
Clients in the sample selected for this study had a mental illness and often a co-occurring
substance-related disorder. These co-occurring disorders were prevalent within each of the
Housing First programs. Across all programs, 69 percent (n = 55) of clients had an axis I
diagnosis as well as a history of substance abuse. Pathways to Housing had the greatest
percentage of clients with co-occurring mental illness and substance abuse at 73 percent (n = 19).
Clients who did not have co-occurring disorders most often had an axis I diagnosis only and no
substance abuse history (n = 18, 23%). (See exhibit 4–13.)

Exhibit 4–13. Co-Occurring Disorders, by Program
DESC
(N = 25)
Pathways to Housing
(N = 26)
REACH
(N = 29)
Total
(N = 80) Disorders
N % N % N % N %
Axis I diagnosis and
substance abuse history
17 68% 19 73% 19 66% 55 69%
Axis I diagnosis only 3 12% 5 19% 10 34% 18 23%
Substance abuse history
only
4 16% 1 4% 0 0% 5 6%
No axis I diagnosis or
substance abuse history
1 4% 1 4% 0 0% 2 3%
Total 25 100% 26 100% 29 100% 80 100%
Data source: Baseline Data Collection Instrument
52

Chapter 4: Characteristics of Housing First Clients

Compared to the entire service-using population identified through the NSHAPC, the clients at
the Housing First programs tracked for the present study were more likely to have a mental
illness, a history of substance abuse, and co-occurring disorders. Sixty-nine percent (n = 55) of
the clients at the Housing First programs had a co-occurring mental illness and history of
substance abuse, compared to 29 percent of the clients in the NSHAPC. In addition, 3 percent of
the clients at the Housing First programs did not have a mental illness or history of substance
abuse while 27 percent of the clients in the NSHAPC did not have these problems (Burt et al.,
2001). These findings point to a relatively more impaired population of homeless individuals
being served by the Housing First programs.

Prior Living Situation
Housing First programs primarily target homeless mentally ill people who are living on the
streets or in emergency shelters. Overall, 67 percent (n = 53) of the clients lived on the streets or
in a shelter immediately prior to entering the Housing First program. The remainder entered the
Housing First program from a variety of living situations. (See exhibit 4–14.)

Exhibit 4–14. Client Living Situation Immediately Prior to Enrollment, by Program
DESC
(N = 25)
Pathways to Housing
(N = 26)
REACH
(N = 29)
Total
(N = 80) Living Situation
N % N % N % N %
Streets 9 36% 5 19% 17 59% 31 39%
Homeless shelter 14 56% 6 23% 2 7% 22 28%
Jail or prison 0 0% 1 4% 0 0% 1 1%
Psychiatric hospital 2 8% 11 42% 1 3% 14 18%
Other or unknown 0 0% 3 12% 9 31% 12 16%
Data source: Baseline Data Collection Instrument
Note: The living situation immediately prior to enrollment was unknown for only two clients (both from Pathways to Housing).

Most REACH clients entered the program directly from the streets, while most DESC clients
came directly from shelters. At Pathways to Housing, 42 percent (n = 11) of clients entered their
scattered-site apartments directly from psychiatric hospitals as part of a special grant to serve
people who would otherwise become homeless upon discharge. Many clients served by this
grant enrolled in Pathways to Housing during the study enrollment period. Another 23 percent
(n = 6) of Pathways to Housing clients came from homeless shelters. Living situations
categorized as “other” were most common at REACH and included a crisis house, living with
friends, a hotel, and medical treatment facilities.

Although case managers did not report detailed housing histories, they did document whether the
study clients met the U.S. Department of Housing and Urban Development (HUD) criteria for
being “chronically homeless.”
61
Eighty-eight percent (n = 70) of the study clients had met the
criteria within the past 3 years, 11 percent (n = 9) did not meet the criteria, and this information

61
A chronically homeless person is defined as an unaccompanied homeless individual with a disabling condition
who has either been continuously homeless for one year or more or has had at least four episodes of homelessness
during the past three years. Because HUD defines homelessness as sleeping in a place not meant for human
habitation or an emergency shelter, those coming into Housing First programs from a psychiatric hospital or jail had
to have been previously homeless.
53

Chapter 4: Characteristics of Housing First Clients
was unknown for one client at Pathways to Housing. Due to the large difference in sample sizes
between clients who were chronically homeless and those who were not, one cannot claim that
differences between these categories are statistically significant.

Suggestive findings regarding the differences between clients who were chronically homeless
and those who were not include the following: Chronically homeless clients were slightly
younger, more likely to have children, had less education, and minimal employment experience.
They were also more likely to have a chronic medical condition, a psychiatric diagnosis, and a
co-occurring disorder compared to those who were not chronically homeless. Finally,
chronically homeless clients were most likely to enter the Housing First program directly from
the streets and to have no income at enrollment. (See exhibit 4–15.)

Exhibit 4–15. Client Characteristics, by Chronic Homelessness Status
Chronically
Homeless
(N = 70)
Not Chronically
Homeless
(N = 9)
Total
(N = 80) Characteristics
N % N % N %
Age 35 years or younger 18 26% 1 11% 19 24%
Age 36–50 years 31 44% 3 33% 34 43%
Age 51 years or older 21 30% 5 56% 27 34%
Children less than 18 years 14 20% 1 11% 15 19%
Less than high school diploma 28 40% 3 33% 31 39%
Chronic medical condition 29 41% 3 33% 33 41%
Ever employed 41 59% 8 89% 49 61%
$0 income at enrollment 12 17% 0 0% 12 15%
Axis I diagnosis 65 93% 7 78% 73 91%
Co-occurring disorder 50 71% 5 56% 55 69%
Prior living situation: Streets 30 43% 1 11% 31 39%
Prior living situation: Shelter 17 24% 5 56% 22 28%
Data source: Baseline Data Collection Instrument
Notes: Due to comparison of categories with significantly different sample sizes, percentages
are for illustrative purposes only. Chronic homelessness status was unknown for one client at
Pathways to Housing. The total column includes all 80 clients in the sample.

BASELINE DIFFERENCES BY PRIOR LIVING SITUATION

As previously discussed, clients enrolled in the Housing First programs from a number of
different living situations. To learn more about the characteristics of people who live in various
housing situations prior to enrollment, the study team compared baseline demographics across
prior living situations. The study team placed each of the clients participating in the study into
one of four groups, based on their prior living situations:

54

Chapter 4: Characteristics of Housing First Clients
• Streets (n = 31);
• Homeless shelters (n = 22);
• Psychiatric hospitals and jail (n = 15);
62
and
• Other locations (n = 12).
63

This section highlights the key demographic differences among the three primary prior living
situation categories—streets, homeless shelters, jails/psychiatric hospitals. One cannot be certain
that the demographics tell a real story for the category of other locations because it contains a
number of different living environments; therefore, these data will not be explored separately.
The exhibits inserted throughout this section provide detailed summary data for client
characteristics, psychiatric diagnoses and impairments, and substance abuse history.

Client Characteristics at Enrollment
Clients who entered the Housing First programs from homeless shelters were much less likely to
be female—only 9 percent (n = 2) of clients from shelters were female, compared to more than
23 percent (n = 7) of clients from the streets and 27 percent (n = 4) of clients from psychiatric
hospitals or jail.

The study sample included a substantial number of clients (primarily at Pathways to Housing)
who resided in a psychiatric hospital or jail immediately prior to entering the Housing First
program. These clients were generally older than clients from other prior living situations, as
47 percent (n = 7) of them were age 51 years or older. (See exhibit 4–16.)

Exhibit 4–16. Client Age at Enrollment, by Prior Living Situation
Streets
(N = 31)
Shelters
(N = 22) 
Psychiatric
Hospital/Jail
(N = 15)
Other/Unknown
(N = 12)
Total
(N = 80) Age
N % N % N % N % N %
35 years or younger
7 23% 5 23% 3 20% 4 33% 19 24%
36–50 years
16 52% 9 41% 5 33% 4 33% 34 43%
51 years or older
8 26% 8 36% 7 47% 4 33% 27 34%
Total
31 100% 22 100% 15 100% 12 100% 80 100%
Data source: Baseline Data Collection Instrument

Client Background
Clients from psychiatric hospitals or jail were the least educated (53 percent had less than a high
school diploma) and had the least employment history, compared to those from the streets and
shelters. Almost three-fourths (n = 11) of clients from psychiatric hospitals or jail had no
employment history, while these proportions were less than one-third for clients from the streets
(n = 8) and shelters (n = 7). Clients from the streets were most likely to have been previously
incarcerated (n = 14, 45 percent), although they did not have the highest incidence of previous
arrest. Clients from shelters had the highest rate of arrests at 68 percent (n = 15), compared to

62
One client entered the Housing First program from jail or prison. That client was included with the group of
clients who came from psychiatric hospitals—both living situations were fixed, controlled, and institutional
environments.
63
Other locations included a crisis house, living with friends, a hotel, and medical treatment facilities.
55

Chapter 4: Characteristics of Housing First Clients
52 percent (n = 16) for those from the streets and 20 percent (n = 3) for those from psychiatric
hospitals or jail. (See exhibit 4–17.)

Exhibit 4–17. Client Background at Enrollment, by Prior Living Situation
Streets
(N = 31)
Shelters
(N = 22)
Psychiatric
Hospital/Jail
(N = 15)
Other/Unknown
(N = 12)
Total
(N = 80) Client Background
N % N % N % N % N %
Less than a high school diploma 11 35% 10 45% 8 53% 2 17% 31 39%
No employment history 8 26% 7 32% 11 73% 3 25% 29 36%
Previously arrested 16 52% 15 68% 3 20% 10 83% 44 55%
Previously incarcerated 14 45% 6 27% 2 13% 7 58% 29 36%
Data source: Baseline Data Collection Instrument
Note: Client background characteristics are not mutually exclusive.

Psychiatric Diagnoses, Symptoms, and Impairment
More than one-quarter (n = 6) of clients from shelters did not have an axis I diagnosis—the
lowest of any group. This finding is related to the smaller number of diagnosed schizophrenics
among these clients. All clients from psychiatric hospitals or jail had an axis I diagnosis and
were overwhelmingly diagnosed with schizophrenia or other psychotic disorders (n = 13, 87
percent). (See exhibit 4–18.)

Exhibit 4–18. Axis I Diagnoses at Enrollment, by Prior Living Situation
Streets
(N = 31)
Shelters
(N = 22)
Psychiatric
Hospital/Jail
(N = 15)
Other/Unknown
(N = 12)
Total
(N = 80) Diagnoses
N % N % N % N % N %
Axis I diagnosis 30 97% 16 73% 15 100% 12 100% 73 91%
Schizophrenia or other
psychotic disorders
20 65% 11 50% 13 87% 8 67% 52 65%
Mood disorders 7 23% 5 23% 2 13% 4 33% 18 23%
Other disorders 3 10% 0 0% 0 0% 0 0% 3 4%
Data source: Baseline Data Collection Instrument

While there were no major differences in axis I diagnosis for clients who entered the Housing
First programs from the streets or from other housing locations, levels of psychiatric impairment
were different. Clients from the streets experienced the highest levels of impairment related to
psychiatric symptoms. All but one client from the streets (n = 30, 97 percent) had psychiatric
symptoms at baseline while 68 percent (n = 15) of clients from shelters and 73 percent (n = 11)
of clients from psychiatric hospitals or jail experienced psychiatric symptoms at baseline.

Only 7 percent (n = 1) of clients from psychiatric hospitals or jail and 9 percent (n = 2) of clients
from shelters experienced severe impairment due to psychiatric symptoms. The lack of severity
of psychiatric impairment among this population is very likely related to their recent receipt of
longer-term psychiatric treatment or better medication management; however, 55 percent
(n = 17) of clients from the streets experienced severe impairment related to psychiatric
symptoms. This high frequency of severe impairment may be related to a lack of consistent
service provision while living on the streets. (See exhibit 4–19.)
56

Chapter 4: Characteristics of Housing First Clients
Exhibit 4–19. Psychiatric Symptoms and Impairment at Enrollment,
by Prior Living Situation
Streets
(N = 31)
Shelters
(N = 22)
Psychiatric
Hospital/Jail
(N = 15)
Other/Unknown
(N = 12)
Total
(N = 80)
Psychiatric
Symptoms
and Impairment
N % N % N % N % N %
Psychiatric
symptoms
30 97% 15 68% 11 73% 10 83% 66 83%
Level of impairment
None 1 3% 9 41% 4 27% 2 17% 16 20%
Moderate 13 42% 11 50% 10 67% 4 33% 38 48%
Severe 17 55% 2 9% 1 7% 6 50% 26 33%
Data source: Baseline Data Collection Instrument

Substance Abuse, Treatment, and Impairment
While clients coming from the streets were the least likely to have reported a history of substance
abuse, they were also least likely to have received treatment. Only 26 percent (n = 8) of clients
from the streets received treatment, compared to 50 percent (n = 11) among those from shelters,
and 67 percent (n = 10) of those from psychiatric hospitals or jail.
64
The subsample of clients
from the streets experienced the largest gap between history of abuse and history of treatment,
indicating a possible lack of service utilization among this group. Clients from psychiatric
hospitals or jail had the highest recorded incidence of a substance abuse history at 80 percent
(n = 12). (See exhibit 4–20.)

Exhibit 4–20. History of Substance Abuse and Treatment, by Prior Living Situation
(N = 31 for streets, N = 22 for shelters, N = 15 for psychiatric hospital/jail)

80%
(12)
77%
(17)
68%
(21)
67%
(10)
50%
(11)
26%
(8)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Streets Shelters Psychiatric Hospital/Jail
History of substance abuse History of treatment

64
Exhibit 4–20 indicates the percentage of all clients in the study sample, by prior living situation, whose case
managers reported that they previously received treatment for a substance-related disorder. The incidence of
previous treatment among clients with a history of substance abuse was greater than the incidence for the entire
sample. Thirty-eight percent of past substance abusers from the streets had a history of treatment, 65 percent of past
substance abusers from shelters had a history of treatment, and 83 percent of past substance abusers from psychiatric
hospitals had a history of treatment.
57

Chapter 4: Characteristics of Housing First Clients
Although the history of substance abuse did not vary much across the categories of prior living
situations, substance use at enrollment was least common (n = 7, 32 percent) among clients from
shelters. Clients from shelters who used substances at enrollment most commonly used both
drugs and alcohol. Clients from psychiatric hospitals or jail had the highest incidence of drug
use at 40 percent (n = 6).

Clients from the streets were more likely than clients from other prior living situations to
experience impairment from substance use—55 percent (n = 17) of clients from the streets
experienced moderate to severe impairment from substance use at the time of enrollment. In
addition, clients from psychiatric hospitals or jail were less likely than other clients to experience
impairment related to substance use (n = 3, 20 percent). (See exhibit 4–21.)

Exhibit 4–21. Substance Abuse and Impairment at Enrollment,
by Prior Living Situation
Streets
(N = 31) 
Shelters
(N = 22)
Psychiatric
Hospital/Jail
(N = 15)
Other/Unknown
(N = 12)
Total
(N = 80)
Substance Use and
Impairments
N % N % N % N % N %
Substance use at enrollment 19 61% 7 32% 9 60% 5 42% 40 50%
Substances used (of those who used substances at enrollment)
Alcohol only 7 23% 2 9% 3 20% 4 33% 16 20%
Drugs only 3 10% 0 0% 6 40% 0 0% 9 11%
Alcohol and drugs 9 29% 5 23% 0 0% 1 8% 15 19%
Impairment from substance use (of those who used substances at enrollment)
None 1 3% 1 5% 3 20% 0 0% 5 6%
Moderate 10 32% 3 14% 4 27% 1 8% 18 23%
Severe 7 23% 3 14% 2 13% 4 33% 16 20%
Unknown 1 3% 0 0% 0 0% 0 0% 1 1%
Data source: Baseline Data Collection Instrument
Notes: Impairment from substance use shows, for all clients with substance use at enrollment, the level of impairment caused by
that use. If a client used both alcohol and drugs, the higher level of impairment is noted.

Co-Occurring Disorders
Clients who entered the Housing First program from a psychiatric hospital or jail (n = 12, 80
percent) or some other or unknown location (n = 10, 83 percent) most frequently had a co-
occurring psychiatric diagnosis and substance abuse history. Clients from the streets were more
likely to have an axis I diagnosis only (n = 10, 32 percent), while clients from shelters were more
likely to have a substance abuse history but no axis I diagnosis (n = 4, 18 percent). (See exhibit
4–22.)
58

Chapter 4: Characteristics of Housing First Clients
Exhibit 4–22. Co-Occurring Disorders, by Prior Living Situation
Streets
(N = 31)
Shelters
(N = 22)
Psychiatric
Hospital/Jail
(N = 15)
Other/Unknown
(N = 12)
Total
(N = 80) Co-Occurring Disorders
N % N % N % N % N %
Clients with axis I diagnosis and substance
abuse history
20 65% 13 59% 12 80% 10 83% 55 69%
Axis I diagnosis only 10 32% 3 14% 3 20% 2 17% 18 23%
Substance abuse history only 1 3% 4 18% 0 0% 0 0% 5 6%
No axis I diagnosis or substance abuse
history
0 0% 2 9% 0 0% 0 0% 2 3%
Total 31 100% 22 100% 15 100% 12 100% 80 100%
Data source: Baseline Data Collection Instrument

SUMMARY OF BASELINE CHARACTERISTICS OF STUDY CLIENTS

The clients enrolled in this study represent the severely impaired homeless population that
Housing First programs intend to target. The majority of clients had been chronically homeless,
had an axis I diagnosis, exhibited symptoms of mental illness or psychiatric problems, and were
at least moderately impaired by their symptoms at enrollment. Three-quarters of the clients had
a history of substance abuse, although only about one-half were using substances at the time of
enrollment. In addition to their mental illness and substance abuse problems, these clients had
limited work histories, low educational attainment, and a high incidence of criminal records.

Clients who entered the Housing First program from different prior living situations often
demonstrated different service needs. Those entering the program directly from the streets were
more likely to have criminal records and more severe levels of psychiatric and substance-related
impairment. Clients from shelters also had a high frequency of criminal records, but were less
likely to be currently using drugs or alcohol. These clients were also less likely to have an axis I
diagnosis, possibly indicating a lack of psychiatric assessment rather than the absence of
psychiatric problems. Finally, those who entered the Housing First program from a psychiatric
hospital or jail were typically older, had little education, no employment history, and experienced
a moderate level of psychiatric impairment, presenting unique challenges to increase levels of
self-sufficiency.

The demographic findings in this study point to a hard-to-serve population of homeless
individuals with histories complicated by substance abuse and criminal activity. This population
as whole is at a disadvantage regarding the tools and experiences needed to increase their levels
of self-sufficiency, further complicated by current levels of impairment.
59

Chapter 4: Characteristics of Housing First Clients
.
60

CHAPTER 5: HOUSING TENURE

The Housing First approach is designed to improve housing stability for people who traditionally
have been very difficult to house or have had difficulty maintaining their housing. Case
managers at the Downtown Emergency Service Center (DESC), Pathways to Housing, and
Reaching Out and Engaging to Achieve Consumer Health (REACH) work with clients to build
skills to maintain their housing, address behavioral or substance abuse issues that may put their
housing at risk, and work with clients to transition into new housing if problems arise. The
primary indicator of a program’s ability to improve clients’ housing stability is the percentage of
clients who stay in the program.

The majority of clients tracked for this study remained enrolled in the Housing First program for
at least one year following program entry. Among the 80 clients followed in this study
43 percent (n = 34) of the clients remained in the Housing First program for a year and stayed in
their housing unit for the entire time; 41 percent (n = 33) remained in the program for a year and
spent at least one night in some other temporary living environment; and the remaining
16 percent (n = 13) of the clients left the program or died within the first 12 months of
enrollment.

This chapter will describe housing tenure—including housing stability, change in housing unit,
and housing problems—for stayers (clients who remained in the Housing First program for
12 months without any time in temporary living environments), intermittent stayers (clients who
remained in the Housing First program for 12 months, but spent some time in at least one
temporary living environment), and leavers (clients who permanently left the program before
12 months). The chapter begins by describing stayers, intermittent stayers, and leavers and then
compares them among a number of characteristics.

STAYERS, INTERMITTENT STAYERS, AND LEAVERS

An important feature of the Housing First approach is that housing is presumed to be permanent.
Some clients do leave their housing for periods of time, but all three programs selected for this
study try to reserve housing for clients who are expected to return. In most cases, the housing
unit can be held for up to 90 days. If the client returns after 90 days, the client may not be able
to return to the same unit, but the Housing First program will often give that client priority for an
available unit. Case managers try to maintain contact with the client during these absences,
wherever the client is staying.

Case managers at the Housing First programs reported, on a monthly basis, whether each client
enrolled in the study spent any time in another living environment during the previous month
and, if so, where and for how long the client was away from program housing. Locations where
61

Chapter 5: Housing Tenure
clients temporarily lived included prison or jail, the streets, a homeless shelter, psychiatric or
medical hospitals, inpatient substance abuse treatment programs, and other locations.
65
Case
managers also reported when a client permanently left the program.

Level of Housing Stability
Because housing tenure and stability are key outcomes for Housing First clients, the study team
grouped the sample of 80 clients into three categories based on level of housing stability.

• Stayers—Clients characterized as stayers remained in the Housing First program for a full
12 months and did not experience any temporary program departures to other living
environments during that time. Stayers accounted for 43 percent (n = 34) of the study
sample.

• Intermittent Stayers—Clients characterized as intermittent stayers were enrolled in the
Housing First program for a full 12 months, but did experience at least one temporary
program departure to another living environment during that time.
66
The study team did not
consider these absences formal departures. Staff continued to contact clients to encourage
them to return to program housing. This continued followup helped clients maintain some
level of service engagement despite some instability in their housing situation. It is advisable
to consider these episodic departures as part of a stabilizing strategy for program clients.
Intermittent stayers accounted for 41 percent (n = 33) of the study sample.

• Leavers—Clients characterized as leavers were disenrolled from the Housing First program
within the first 12 months of tenure. Disenrolled means that the client no longer lives in
program housing, is no longer in contact with case management or other program staff, and is
not expected to return. Although leavers left the program permanently, more than three-
quarters (n = 10) of leavers had also experienced at least one temporary program departure to
another living environment during their tenure in the program. Leavers accounted for
16 percent (n = 13) of the study sample.

Exhibit 5–1 shows the distribution of housing stability across Housing First programs in this
study. REACH and DESC reported larger numbers of clients who spent some time away from
their program housing compared to Pathways to Housing. Forty percent (n = 10) of DESC
clients and 52 percent (n = 15) of REACH clients spent at least one night in a living environment
other than program housing. In addition, DESC and REACH reported a higher percentage of
leavers than Pathways to Housing with 20 percent (n = 5) at DESC and 21 percent (n = 6) at
REACH.

65
Temporary departures did not include vacations or visits to friends or family.
66
For intermittent stayers, the total duration of temporary departures to another living environment was greater than
one week, with the exception of three clients. For three clients, the total duration was less than three days. See
exhibit 5–2 for duration in other living environments by level of housing stability.

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Chapter 5: Housing Tenure
Exhibit 5–1. Level of Housing Stability, by Program
(N = 25 at DESC, N = 26 at Pathways to Housing, N = 29 at REACH)

40%
(10)
62%
(16)
28%
(8)
40%
(10) 31%
(8)
52%
(15)
20%
(5)
8%
(2)
21%
(6)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
DESC Pathways to Housing REACH
Stayers Intermittent Stayers Leavers

Data indicated that Pathways to Housing clients had the greatest level of housing stability with
62 percent (n = 16) remaining in program housing for a full 12 months. Further, only 8 percent
(n = 2) of its clients permanently left the program during the first 12 months. While these clients
may in fact have had fewer temporary leaves, it is also possible that short-term absences were
less likely to be known to Pathways to Housing staff. The data collected on service contacts
indicate that Pathways to Housing clients have less frequent contact with program staff
compared to the other sites—on average, Pathways to Housing had 8.8 contacts with each client
during the first month of housing compared with 50.7 at DESC and 13.6 at REACH. (See
Chapter 3.) It is possible that a client could leave a unit for a short period of time and Pathways
to Housing staff might only learn of the absence if the client reported it.

Frequency and Duration in Other Living Environments
A second indicator of housing stability is the amount of time that clients spent in other living
environments. Exhibit 5–2 indicates the number of clients who did not spend time in other living
environments and the duration in other living environments for those who did. Stayers, by
definition, spent no time in other living environments during the first 12 months. Despite their
shorter tenure in the program, leavers spent more time than intermittent stayers in other living
environments.

REACH clients spent the most time away from their housing—45 percent (n = 13) of REACH
clients spent at least one month out of 12 in other living environments. Approximately 20
percent of clients at DESC (n = 5) and Pathways to Housing (n = 5) spent time in other living
environments. Although temporary departures were numerous and some were lengthy, the
absences did not seem to create a vacancy problem for the programs (or cause an inefficient use
of program funds to cover vacancy losses). Program housing was only vacant for an average of

63

Chapter 5: Housing Tenure
8 percent of available person-nights across all three programs.
67
The percentage ranged from 4
percent of person-nights at DESC to 6 percent at Pathways to Housing to 14 percent at REACH.

Exhibit 5–2. Duration in Other Living Environments, by Level of Housing Stability
Stayers
(N = 34)
Intermittent Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80)
Duration in Other Living
Environments
N % N % N % N %
No time spent in other living
environments
34 100% 0 0% 3 23% 37 46%
Less than 2 weeks
0 0% 7 21% 2 15% 9 11%
2 weeks to 1 month
0 0% 11 33% 1 8% 12 15%
1 to 3 months
0 0% 7 21% 2 15% 9 11%
3 months or longer
0 0% 8 24% 5 38% 13 16%
Total
34 100% 33 100% 13 100% 80 100%
Data source: Monthly Data Collection Instrument
Note: The duration in other living environments for leavers does not include their final departure.

To analyze where clients stayed during temporary departures from the Housing First program,
the study team looked at two variables: the frequency with which clients stayed in a particular
living environment and the total number of nights that clients spent, in aggregate, at each of the
living environments. Exhibit 5–3 lists the number of clients who stayed temporarily in each of
the other living environments.

Exhibit 5–3. Frequency of Other Living Environments, by Level of Housing Stability
Stayers
(N = 34)
Intermittent Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80)
Other Living Environments
N % N % N % N %
Homeless 12 36% 4 31% 16 35%
Psychiatric hospital 11 33% 2 15% 13 28%
Substance abuse treatment or detox 6 18% 1 8% 7 15%
Medical hospital 8 24% 3 23% 11 24%
Jail or prison 6 18% 4 31% 10 22%
Other 5 15% 23% 8 17%
Average number of locations 1.5 1.3 1.4
Data source: Monthly Data Collection Instrument
Note: This table indicates the number of clients who spent at least one night in each of the other living environments and
includes multiple responses. The shading of the stayers columns indicates that this category of clients did not experience any
temporary program departures. Other living environments included skilled nursing facility and unknown locations. Frequency of
other living environments for leavers does not include their final departure. The total percentages were calculated by dividing the
total frequency by the number of intermittent stayers and leavers who had temporary program departures (n = 33 + 10 = 43).

67
Total person-nights is the number of possible nights that a person could have stayed in a Housing First unit,
multiplied by the number of units. For this particular analysis, the number of possible nights is 365 because the
period during which these data were collected was 12 months; the number of units is the number of program stayers.
For example, DESC had 20 stayers, so the number of person-nights at DESC was 7,300 (or 20*365). The
percentage of unoccupied person-nights was determined by dividing the number of nights clients spent in other
living environments by the total possible person-nights. For DESC, this is 4 percent (or 286/7300).

64

Chapter 5: Housing Tenure
The average number of locations for intermittent stayers and leavers was similar at 1.5 and
1.3 locations each. Intermittent stayers were more likely than leavers to temporarily leave the
program for a stay in a psychiatric hospital (n = 11, 33 percent), while leavers were more likely
to have a temporary stay in jail or prison (n = 4, 31 percent). Overall, the most temporary
departures were to homelessness. Some clients in the focus groups reported they had difficulty
transitioning from sleeping on the streets to sleeping inside.

Across the Housing First programs, REACH clients who experienced temporary program
departures lived in the greatest average number of other living environments at 1.6 compared to
1.3 at DESC and 1.1 of Pathways to Housing. DESC clients who experienced temporary
program departures were most likely to stay in a medical hospital (n = 8, 50 percent). This is
partially explained by the fact that four of the study participants lived at the Lyon Building,
which serves clients with HIV/AIDS. Of the small number of temporary departures reported for
Pathways to Housing clients, several entered psychiatric hospitals (n = 4, 36 percent). This may
be explained partially by the prevalence of Pathways to Housing clients who entered the program
immediately following a stay in a psychiatric hospital.

Temporary departures for REACH clients were most often to homelessness (n = 13, 62 percent),
a choice made less threatening by the temperate climate in San Diego. Several REACH focus
group participants also noted dissatisfaction with the quality and safety of their housing. Several
of these comments came from residents of one of the single room occupancy (SRO) hotels that
(at the time) housed a large number of REACH clients.
68
One resident stated that she would
rather live outdoors than in her SRO unit. Residents of this SRO may be more likely to leave for
periods of time.

Case managers also provided information about the duration of clients’ temporary departures.
Exhibit 5–4 lists the cumulative number of nights that clients at each program spent in other
living environments. On average, leavers spent 79 nights in other living environments, while
intermittent stayers spent 61 nights. Overall, clients spent most nights homeless—followed by
stays in psychiatric hospitals—during temporary program departures. Despite the fact that they
had shorter overall stays in the programs, leavers still spent the largest amount of time in other
living environments, which included whereabouts unknown.

The 70 clients who were identified as chronically homeless spent the greatest average number of
nights in another living environment—37 nights compared with 21 nights for those who were not
chronically homeless.
69

68
Program staff have since decided to reduce the number of REACH clients housed at this SRO.
69
Chronic homelessness is defined as continuously homeless for one year or more prior to entering the program or
had at least four episodes of homelessness during the previous 3 years.

65

Chapter 5: Housing Tenure
Exhibit 5–4. Nights Spent in Other Living Environments, by Level of Housing Stability
Total Nights
Other Living Environments
Stayers
(N = 34)
Intermittent
Stayers
(N = 33)
Leavers
(N = 13)
N %
Homeless
1,049 216 1,265 45%
Psychiatric hospital
361 75 436 16%
Substance abuse treatment or detox
115 5 120 4%
Medical hospital
134 72 206 7%
Jail or prison
251 120 371 13%
Other or unknown
89 302 391 14%
Total nights clients spent in other living environments 1,999 790 2,789 100%
Average nights clients spent in other living environments

61 79 65
Data source: Monthly Data Collection Instrument
Note: The shading of the stayers columns indicates that this category of clients did not experience any temporary program
departures. Other living environments included skilled nursing facility and unknown locations. The average number of nights for
leavers was calculated by dividing the total nights for leavers by the number of leavers who had temporary program departures
(n = 10). The average number of total nights was calculated by dividing the total nights by the number of intermittent stayers and
leavers who had temporary program departures (n = 33 + 10 = 43). Duration in other living environments for leavers does not
include their final departure.

Movement within the Housing First Program
Most of the housing units offered at the three Housing First programs are considered permanent
and there are no limits on length of stay. The exceptions are the safe havens at DESC, where
clients are expected to move to other permanent supportive housing within 24 months, and
REACH, where clients are expected to move within 18 months.
70
Other permanent housing
options such as SRO units or scattered-site apartments are available to these clients when they
move from safe havens.

In addition to moves from safe havens to other permanent supportive housing, clients may move
to a different program unit for other reasons, such as dissatisfaction with current housing, a
preference for living in a particular neighborhood, a perception that other housing is more
independent or of higher quality, or problems with neighbors or a landlord. Intermittent stayers
were by far the most likely to change their Housing First unit. Almost 50 percent of these clients
(n = 16) moved from one Housing First unit to another at least once during the first 12 months of
their housing tenure. Among the stayers, only 18 percent (n = 6) changed units, while 31 percent
(n = 4) of leavers changed units prior to disenrolling from the Housing First program. (See
exhibit 5–5.)

70
Out of a total of 29 REACH clients who participated in this study, 31 percent (n = 9) stayed in the safe haven for a
range of five nights to up to 12 months, with the majority (n = 6) of clients staying less than 3 months. At DESC,
five out of the 25 study participants stayed at the safe haven for an average length of stay of 10.2 months.

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Chapter 5: Housing Tenure
Exhibit 5–5. Movement within the Housing First Program during First Year of Residence,
by Level of Housing Stability
(N = 34 for stayers, N = 33 for intermittent stayers, N = 13 for leavers)

31%
(4)
48%
(16)
18%
(6)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stayers Intermittent Stayers Leavers

At the site level, few clients from DESC or Pathways to Housing moved from one program unit
to another during the first 12 months in the Housing First program, and none moved more than
once. One DESC client moved from an SRO to the safe haven following a period of inpatient
treatment.
71
Four Pathways to Housing clients moved from one program unit to another: the
first client lost her initial apartment due to behaviors associated with alcohol use; the second
client moved due to problems with the condition of her building; the third client requested to
move to another borough in New York City; and the fourth client moved from a short stay at a
hotel, while looking for housing to a permanent, scattered-site apartment.

By contrast, REACH clients moved more frequently. Some 76 percent (n = 22) of REACH
clients relocated within 12 months, and the average number of moves was almost two. Some of
these moves reflect positive movement to more independent housing (e.g., from the safe haven to
an SRO or from an SRO to a scattered-site apartment). During the 12-month period, eight
REACH clients changed housing units under what could be characterized as positive
circumstances. For example, six clients moved from the safe haven to another program unit
within the first three months of housing. Other moves, however, were related to housing
problems at one location that resulted in the client moving before a threatened eviction. At least
six clients moved under such negative circumstances. In the most extreme case, one client
moved eight times during the tracking period—in each case, this client was asked to leave due to
his disruptive behavior. Case managers reported that two REACH clients were moved to
different housing as a result of disruptive behavior related to drug or alcohol use.

It is important to note that the REACH program is by far the youngest of the three sites selected
for this study, and could be characterized as still undergoing development. REACH clients
experienced the highest level of movement within and out of the program, and REACH is still

71
Program staff described this as an unusual case. More commonly, clients move from the safe haven to an SRO.
Among the five clients tracked for this study who initially moved into DESC’s safe haven, none moved to another
program unit within 12 months.

67

Chapter 5: Housing Tenure
working to develop its housing component. This work includes increasing the availability of
housing options as well as clients’ choice among these options.

Housing Problems
Given the history of homelessness and level of impairment from mental illness and substance use
among the clients tracked for this study, the study team anticipated reports of housing problems.
The Housing First program staff indicated, each month, whether clients experienced any housing
problems, and if so, described the problem. Housing problems were reported most frequently for
intermittent stayers, and these problems were typically related to behavioral issues that included
poor hygiene or clients’ disruptive responses to hallucinations related to their mental illness.
Problems for leavers and stayers were most often classified as other and included drug dealing,
other criminal activity, medication noncompliance, failure to pay rent, and breaking other rules
of the residence. (See exhibit 5–6.)

Exhibit 5–6. Frequency of Housing Problems, by Level of Housing Stability
Stayers
(N = 34)
Intermittent
Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80) Housing Problems
N % N % N % N %
Property damage, failure to upkeep apartment 14 20% 9 5% 2 4% 25 8%
Drug or alcohol-related problem behavior 1 1% 17 9% 9 17% 27 9%
Alcohol or drug use 13 19% 38 20% 11 21% 62 20%
Abusive to staff, visitors, residents, neighbors 1 1% 20 11% 3 6% 24 8%
Other behavioral issues 18 26% 52 28% 10 19% 80 26%
Other problems 22 32% 51 27% 18 34% 91 29%
Total 69 100% 187 100% 53 100% 309 100%
Data source: Monthly Data Collection Instrument
Note: Other problems include drug dealing, other criminal activity, medication noncompliance, failure to pay rent, and breaking
other rules of the residence. Frequency of housing problems include multiple responses—some reported problems are
counted more than once due to the categorization of problems.

At the site level, DESC had the highest average number of housing problems reported per client.
However, with an average of 11 housing problems reported per client over one year, DESC staff
reported fewer than one problem per client per month. Because DESC has the most intensive
staffing of the three programs—and program staff are always present—it might be expected to
have the highest rate of reported problems as staff have the greatest opportunity to observe
problematic behavior.

While housing problems may not be frequent, some are serious enough to jeopardize a client’s
housing in a less tolerant setting. For example, across all three Housing First programs, there
were 62 incidences of problem behavior linked to alcohol or drug use, 80 incidences of other
behavioral issues, 24 incidences of abusive behavior toward others, and 25 incidences of
property damage or failure of clients to upkeep their apartments.

Clearly, to keep clients stably housed and to maintain relationships with landlords, staff at
REACH and Pathways to Housing in particular must have strategies to identify and respond to
housing problems that may be severe. Strategies include frequent contact with clients, especially

68

Chapter 5: Housing Tenure
in the first months after they move into their housing. Program staff also encourage landlords to
contact the program if there are any concerns about a client’s behavior or well-being.

DEMOGRAPHICS AND BASELINE CHARACTERISTICS

To explore factors that influence staying and leaving the programs, the study team explored
client demographics, income and sources of benefits, prior living situations, co-occurring
disorders, and baseline levels of impairment related to mental illness and substance use. Case
managers at the Housing First programs reported this information for each client at baseline.
Assessments of levels of impairment were based on the case managers’ knowledge of the client
and professional judgment. Although the small sample sizes (particularly for leavers) preclude
drawing firm conclusions about predictors of housing stability, some patterns emerge between
client characteristics and housing tenure outcomes.

Demographics
The demographic characteristics of the clients in the study sample revealed some differences
among clients based on their level of housing stability during the first 12 months in the Housing
First program. Women were more likely to experience temporary departures from program
housing (n = 11, 33 percent) than to stay in housing every night or leave the program
permanently. Intermittent stayers were also slightly younger and more likely than other clients to
have children younger than 18 years (n = 9, 27 percent). More than one-half of stayers (n = 17)
and intermittent stayers (n = 19) were white. There was a higher proportion of black clients
among leavers (n = 5, 38 percent) than the other groups. (See exhibit 5–7.)

The majority of leavers had less than a high school diploma (n = 8, 62 percent) although they
were more likely than stayers to have some employment history. Almost one-half of stayers (n =
16, 47%) did not have any history of employment. The most distinct similarity between
intermittent stayers and leavers was their history of arrest and incarceration. This history was
much more prevalent among these two groups than for stayers. Seventy percent (n = 23) of
intermittent stayers and 62 percent (n = 8) of leavers had previous arrests, compared to only 38
percent (n = 13) of stayers did. Intermittent stayers and leavers were twice as likely as stayers to
have been previously incarcerated. These variables may have had some impact on the level of
housing stability as it is often more difficult for people with a criminal history to secure housing
and one’s status as an ex-offender may indicate additional behavioral or legal problems.

Intermittent stayers were slightly more likely to have chronic medical conditions (n = 16, 48
percent), which could explain their temporary leaves from program housing to enter a medical or
psychiatric treatment facility. Finally, the majority of all clients was chronically homeless, and
all groups were almost equally likely to be chronically homeless.

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Chapter 5: Housing Tenure
Exhibit 5–7. Demographic Characteristics, by Level of Housing Stability
Stayers
(N = 34)
Intermittent Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80) Characteristics
N % N % N % N %
Gender: female 7 21% 11 33% 0 0% 18 23%
Has children younger than 18 years 5 15% 9 27% 1 8% 15 19%
Less than high school diploma 11 32% 12 36% 8 62% 31 39%
No employment history 16 47% 9 27% 4 31% 29 36%
Previously arrested 13 38% 23 70% 8 62% 44 55%
Previously incarcerated 7 21% 16 48% 6 46% 29 36%
Chronic medical condition 13 38% 16 48% 4 31% 33 41%
Chronically homeless 30 88% 29 88% 11 85% 70 88%
Age
35 years or younger 7 21% 8 24% 4 31% 19 24%
36–50 years 14 41% 16 48% 4 31% 34 43%
51 years or older 13 38% 9 27% 5 38% 27 34%
Race and ethnicity
White, non-Hispanic 17 50% 19 58% 4 31% 40 50%
Black, non-Hispanic 8 24% 10 30% 5 38% 23 29%
Hispanic (any race) 4 12% 2 6% 2 15% 8 10%
Other, non-Hispanic 5 15% 2 6% 2 15% 9 11%
Data source: Baseline Data Collection Instrument
Note: Chronic homelessness was unknown for one Pathways to Housing client in this study, who was a stayer.

Benefits and Income
As reported in Chapter 4, most of the study participants had some income at baseline. At
baseline, intermittent stayers had less income than stayers, but more income than leavers. In
addition, intermittent stayers were more likely than stayers and leavers to receive Supplemental
Security Income (SSI) and Social Security Disability Insurance (SSDI). This may indicate that
the population of intermittent stayers may be more disabled than the others, which is further
bolstered by the fact that clients in this group had more temporary departures to medical and
psychiatric hospitals during their first 12 months in the Housing First program. (See exhibit 5–
8.)

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Chapter 5: Housing Tenure
Exhibit 5–8. Client Benefits and Monthly Income at Baseline, by Level of Housing Stability
Stayers
(N = 34)
Intermittent Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80) Client Benefits and Income
N % N % N % N %
Income range
$0 2 6% 6 18% 4 31% 12 15%
$1–$599 14 41% 14 42% 4 31% 32 40%
$600 or more 18 53% 13 39% 5 38% 36 45%
Income and benefits sources
SSI 14 41% 17 52% 5 38% 36 45%
SSDI 5 15% 10 30% 3 23% 18 23%
Subsidized health insurance 10 29% 13 39% 5 38% 28 35%
Food stamps 7 21% 7 21% 1 8% 15 19%
Other 4 12% 4 12% 2 15% 10 13%
Data source: Baseline Data Collection Instrument
Notes: Other sources of income included welfare income, veterans’ income, employment income, and income from a family
member/lawsuit settlement. Subsidized health insurance included Medicaid, Medicare, and veterans’ health insurance.

Prior Living Situation
Clients who entered the Housing First program from the streets were most likely to leave the
program within 12 months (n = 9, 69 percent) and were also most likely to experience temporary
program departures (n = 12, 36 percent). The clients with the highest levels of housing stability
were those who entered the program from shelters, jail or a psychiatric hospital, or some other or
unknown location, including crisis houses and living with friends.
72
(See exhibit 5–9.)

Exhibit 5–9. Prior Living Situation, by Level of Housing Stability
(N = 34 for stayers, N = 33 for intermittent stayers, N = 13 for leavers)

0%
69%
(9)
36%
(12)
29%
(10)
23%
(3)
30%
(10)
26%
(9)
8%
(1)
15%
(5)
26%
(9)
18%
(6)
18%
(6)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stayers Intermittent Stayers Leavers
Streets Shelter Psychiatric Hospital/Jail Other/Unknown

72
One client entered the Housing First program from jail and was included with the group of clients who came from
psychiatric hospitals—both living situations were fixed, controlled, and institutional environments.

71

Chapter 5: Housing Tenure
Co-Occurring Disorders
As reported in Chapter 4, 69 percent (n = 55) of the study participants had both an axis I
diagnosis and a history of substance abuse at baseline. Clients who left the Housing First
program permanently during the first 12 months were slightly more likely than other clients to
experience co-occurring psychiatric diagnoses and histories of substance abuse (n = 10, 77%).
The remainder of clients—approximately one-quarter of stayers (n = 9) and leavers (n = 3) and
18 percent (n = 6) of intermittent stayers—had a diagnosed psychiatric disorder only. (See
exhibit 5–10.)

Exhibit 5–10. Co-Occurring Disorders, by Level of Housing Stability
Stayers
(N = 34)
Intermittent
Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80) Co-Occurring Disorders
N % N % N % N %
Disorders
Axis I diagnosis and substance abuse
history
22 65% 23 70% 10 77% 55 69%
Axis I diagnosis only 9 26% 6 18% 3 23% 18 23%
Substance abuse history only 1 3% 4 12% 0 0% 5 6%
No axis I diagnosis or substance
abuse history
2 6% 0 0% 0 0% 2 3%
Psychiatric diagnoses
No axis I diagnosis 3 9% 4 12% 0 0% 7 9%
Has axis I diagnosis 31 91% 29 88% 13 100% 73 91%
Schizophrenia, psychotic disorders 25 74% 18 55% 9 69% 52 65%
Mood disorders 5 15% 11 33% 2 15% 18 23%
Other disorders 1 3% 0 0% 2 15% 3 4%
History of substance abuse
None 11 32% 6 18% 3 23% 20 25%
Alcohol 4 12% 10 30% 1 8% 15 19%
Drugs 4 12% 3 9% 2 15% 9 11%
Alcohol and drugs 15 44% 14 42% 7 54% 36 45%
Prior substance abuse treatment 14 41% 15 45% 5 38% 34 43%
Data source: Baseline Data Collection Instrument
Note: Other disorders include oppositional-defiant disorders and personality disorders.

All leavers in the sample, and most stayers and intermittent stayers, had an axis I diagnosis.
73

Intermittent stayers were much more likely than the other two groups to have a mood disorder
(n = 11, 33 percent) and stayers and leavers were more likely to have schizophrenia or other

73
The Diagnostic and Statistical Manual (DSM) of Mental Disorders, published by the American Psychiatric
Association, describes the diagnostic categories of mental disorders and a multiaxial assessment that includes five
axes. Axis I includes clinical disorders and other conditions that may be a focus of clinical attention—schizophrenia
and other psychotic disorders, mood disorders, anxiety disorders, and other conditions. Mood disorders include
depressive disorders, bipolar disorders (characterized by depressive and manic episodes), and substance-induced
mood disorders. Schizophrenia and other psychotic disorders include delusions or hallucinations. Studies have
found that homeless mentally ill clients with mood disorders, rather than schizophrenia, have a higher success rate in
housing (Lipton et al., 2000; Tsemberis and Eisenberg, 2000).

72

Chapter 5: Housing Tenure
psychotic disorders. In addition, intermittent stayers were most likely to have a history of
substance abuse and were more likely to use alcohol alone than other clients. Further,
intermittent stayers also received prior substance abuse treatment more frequently than other
clients—45 percent (n = 15) of intermittent stayers received treatment compared to 41 percent (n
= 14) of stayers and 38 percent (n = 5) of leavers.

Baseline Levels of Impairment
Clients in the study sample with higher levels of impairment related to psychiatric symptoms and
substance use at baseline had lower levels of housing stability. Eighty-five percent of
intermittent stayers (n = 28) and leavers (n = 11) had some impairment related to psychiatric
symptoms upon entering the Housing First program, while 76 percent of stayers (n = 25) were
impaired. (See exhibit 5–11.)

Exhibit 5–11. Level of Impairment Related to Psychiatric Symptoms, Drug Use, and
Alcohol Use, by Level of Housing Stability
Stayers
(N = 34)
Intermittent
Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80) Level of Impairment
N % N % N % N %
Psychiatric impairment
No symptoms 7 21% 5 15% 2 15% 14 18%
No impairment 2 6% 0 0% 0 0% 2 3%
Moderate impairment 19 56% 13 39% 6 46% 38 48%
Severe impairment 6 18% 15 45% 5 38% 26 33%
Impairment related to drug use
No drug use 28 82% 21 64% 7 54% 56 70%
No impairment 2 6% 0 0% 0 0% 2 3%
Moderate impairment 2 6% 8 24% 5 38% 15 19%
Severe impairment 1 3% 4 12% 1 8% 6 8%
Unknown impairment 1 3% 0 0% 0 0% 1 1%
Impairment related to alcohol use
No alcohol use 27 79% 13 39% 9 69% 49 61% 
No impairment 2 6% 4 12% 1 8% 7 9%
Moderate impairment 3 9% 7 21% 3 23% 13 16%
Severe impairment 1 3% 9 27% 0 0% 10 13%
Unknown impairment 1 3% 0 0% 0 0% 1 1%
Data source: Baseline Data Collection Instrument

Consistent with the hypothesis that increased levels of impairment related to psychiatric
symptoms or substance use impact clients’ levels of housing stability, the study team observed
that clients with higher levels of impairment experienced less stable housing histories in the
Housing First programs. The levels of impairment related to drug and alcohol use were higher
for intermittent stayers and leavers than for stayers. While only 9 percent (n = 3) of stayers
experienced impairment related to drug use, 36 percent (n = 12) of intermittent stayers and
46 percent (n = 6) of leavers were impaired as a result of drug use. Similarly, only 12 percent
(n = 4) of stayers experienced impairment related to alcohol use, while 48 percent (n = 16) of

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Chapter 5: Housing Tenure
intermittent stayers and 23 percent (n = 3) of leavers were impaired. In addition, intermittent
stayers were much more likely than other groups to use alcohol.

OUTCOMES

Although housing tenure and stability are the ultimate outcomes for Housing First programs,
they are also factors tied to other outcomes for clients in the programs. One’s housing stability
during the course of the 12-month study may influence other outcomes, including level of
impairment related to psychiatric symptoms and substance use, as well as monthly income and
independence of money management. This section explores each of these outcomes for clients
based on their level of housing stability.

Most of the outcomes explored in this study require comparisons between variables at baseline or
month one and month 12. Baseline refers to the time when the client entered program housing
and month one refers to the end of the first complete month in housing. Because leavers
permanently left the Housing First program prior to the twelfth month, data reported for the final
month of their tenure in the Housing First program are used for the comparison. In addition,
some outcomes could not be evaluated for leavers. The final outcome to be discussed in this
section is leave status and includes detailed information about the 13 clients who left the
Housing First program prior to the twelfth month.

Impairment Related to Psychiatric Symptoms
Exhibit 5–12 compares the level of impairment related to psychiatric symptoms at baseline and
after 12 months in the program for stayers and intermittent stayers and at the last month in the
program for leavers. The columns list first the number of clients who had a given level of
impairment and then the number of clients who experienced a change in impairment from
month one to the final month (month 12 or the client’s last month in the program). For example,
at baseline seven stayers had no psychiatric symptoms and at 12 months that number changed by
one so that eight stayers had no psychiatric symptoms.

Exhibit 5–12. Change in Level of Impairment Related to Psychiatric Symptoms,
by Level of Housing Stability
Stayers
(N = 34)
Intermittent Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80)
Level of Impairment
N at
baseline
Change in
month 12
N at
baseline
Change in
month 12
N at
baseline
Change at
last month
N at
baseline
Change in
month 12
No symptoms 7 +1 5 0 2 0 14 +1
No impairment 2 -2 0 0 0 0 2 -2
Moderate impairment 19 +1 13 +2 6 -4 38 -1
Severe impairment 6 0 15 -3 5 +4 26 +1
Unknown impairment 0 0 0 +1 0 0 0 +1
Data source: Baseline Data Collection Instrument, Monthly Data Collection Instrument
Notes: The last known level of impairment for leavers was the level of impairment reported during their last month in the Housing
First program. The level of impairment for stayers and intermittent stayers was that reported during month 12 of their tenure.

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Chapter 5: Housing Tenure
The level of impairment related to psychiatric symptoms for intermittent stayers appeared to
improve. The level of impairment for one intermittent stayer was unknown during month 12,
most likely due to lack of contact with the client during a temporary departure from the Housing
First program. Between baseline and the month when the leavers permanently left the Housing
First programs, four leavers experienced an increase in their level of impairment related to
psychiatric symptoms from moderate to severe. This increase in impairment may have been
related to the client’s leaving the Housing First program.

Impairment Related to Substance Use
Exhibit 5–13 compares the level of impairment related to substance use at baseline and after
12 months in the program for stayers and intermittent stayers and at the last month in the
program for leavers. The columns list first the number of clients who had a given level of
impairment and then the number of clients who experienced a change in impairment from
month one to the final month (month 12 or the client’s last month in the program). For example,
at baseline 24 stayers did not use substances and there was no change in that number at month
12.

Overall, impairment related to substance use remained fairly stable, with a slight decrease in the
number of clients who used substances during their final month.
74
Level of impairment related
to substance use increased for stayers and leavers, while it decreased for intermittent stayers.

Exhibit 5–13. Change in Level of Impairment Related to Substance Use,
by Level of Housing Stability
Stayers
(N = 34)
Intermittent Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80) Level of Impairment Related to
Substance Use
N at
baseline
Change at
month 12
N at
baseline
Change at
month 12
N at
baseline
Change at
last month
N at
baseline
Change at
month 12
No substance use 24 0 10 +5 6 +1 40 +6
No impairment 3 -2 1 0 1 -1 5 -3
Moderate impairment 4 +4 9 0 5 -4 18 0
Severe impairment 2 -1 13 -5 1 +4 16 -2
Unknown level of impairment 1 -1 0 0 0 0 1 -1
Data source: Baseline Data Collection Instrument, Monthly Data Collection Instrument
Note: Level of impairment is the highest level of impairment related to either drug or alcohol use.

Income and Representative Payee Status
At baseline, stayers were more likely to have a representative payee than intermittent stayers or
leavers. Fifty-nine percent (n = 20) of stayers had a representative payee at baseline.
Approximately 48 percent of intermittent stayers (n = 16) and 38 percent of leavers (n = 5) had
representative payees at baseline and that percentage increased over time. Over 12 months, an
additional 10 percent (n = 3) of intermittent stayers acquired representative payees and
16 percent (n = 2) of leavers acquired representative payees before they left the program.

74
The study team analyzed change in impairment separately for drug and alcohol use. Impairment related to alcohol
use shifted from none to moderate for stayers and intermittent stayers, while it shifted from moderate to severe for
leavers. This increase in alcohol use may be related to the low cost to obtain it, its availability, and few
consequences for drinking in program housing. The severity of impairment related to drug use increased slightly for
leavers.

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Chapter 5: Housing Tenure

The accretion of representative payees during this time may indicate that staff at the Housing
First programs perceived intermittent stayers and leavers to be in need of guidance regarding
their finances. However, intermittent stayers experienced a greater increase in total monthly
income between baseline and month 12 than stayers. (See exhibit 5–14.)

Exhibit 5–14. Change in Representative Payee Status and Monthly Income,
by Level of Housing Stability
Stayers
(N = 34)
Intermittent
Stayers
(N = 33)
Leavers
(N = 13)
Total
(N = 80)
Change in Representative Payee Status
and Income
N % N % N % N %
Change in representative payee status between month 1 and month 12
Representative payee at baseline
20 59% 16 48% 5 38% 41 51%
Representative payee at month 12
19 56% 19 58% 7 54% 45 56%
Change in monthly income between baseline and month 12
Decreased at least $100 6 18% 2 6% 8 12%
Decreased $50–$99 0 0% 2 6% 2 3%
Decreased $1–$49 2 6% 3 9% 5 7%
No Change 12 35% 11 33% 23 34%
Increased $1–$49 10 29% 6 18% 16 24%
Increased $50–$99 0 0% 2 6% 2 3%
Increased at least $100 4 12% 7 21%

11 16%
Data source: Monthly Data Collection Instrument
Notes: The last known status of representative payeeship for leavers was reported during their last month in the Housing First
program. For stayers it was reported during month 12 of their tenure. The shading of the leavers columns indicates that
12-month outcomes could not be evaluated for this category of clients because they left the program prior to 12 months.

Leavers
This section provides additional detail on the circumstances of program leavers. Of the 80
clients tracked for this study, 16 percent (n = 13) left the program within one year of entry. The
distribution of leavers across programs is as follows:

• Five clients left DESC;
• Two clients left Pathways to Housing; and
• Six clients left REACH.

Leaving the Housing First programs is not easy to do given the fact that program staff work with
clients to keep them in housing, even if it requires moving them if there are problems. As
discussed above, clients do continue to live in program housing even though many have
significant behavioral issues that might threaten their housing elsewhere. The programs usually
reserve housing for as long as possible for a client who leaves and will rehouse the client upon
return. In addition, under most circumstances, case managers try to maintain contact with clients
for at least 90 days after they leave program housing.

The program leavers in this study were primarily people who died (n = 4) or left involuntarily
(n = 6). Only three clients left voluntarily, supporting the hypothesis that if housing is offered

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Chapter 5: Housing Tenure
without conditions and with support, most of the chronically homeless people with co-occurring
disorders targeted by these programs will remain in the program, some with intermittent
departures.

Reasons for Leaving
There was a range of reasons for leaving among the 13 clients who left program housing within
12 months. To protect clients’ confidentiality—given the small number of cases—exhibit
5–15 summarizes the reasons for leaving across all programs.

Exhibit 5–15. Reasons for Leaving Housing First Programs
Type of Departure Reason for Leaving Number of Clients Comments
Death
4
1 died of AIDS
2 medication overdoses
1 killed in confrontation with police
Incarcerated 2
Institutional care
2
1 long-term drug treatment
1 skilled nursing facility
Involuntary
Asked to leave by program 2 Both due to alleged assaults on other residents
Left voluntarily 1 Did not want to apply for Social Security Number Voluntary
Left without explanation 2
Total 13
Data source: Monthly Data Collection Instrument, followup by local researchers

Most leaves are categorized as “involuntary,” including leaving housing for more intensive care,
such as long-term drug treatment or skilled nursing. Two clients were incarcerated, one for
attempted murder and the other on a drug charge. Two clients were asked to leave their
programs due to alleged assaults on other residents. Among the voluntary leavers, one client left
following resistance to obtaining identification to secure benefits and the remaining two were
described by staff as “wanderers” who most likely left the cities where the programs were
located.

While some research indicates that departures are more likely during the first few months after
entering housing, among the study clients, the departures in this study occurred during months
3–11 after enrollment. Five departures occurred between months three and six and the remaining
eight departures occurred during months 7–12.
75
(See exhibit 5–16.)

Exhibit 5–16. Time of Program Departure for Leavers, by Program
DESC
(N = 5)
Pathways to
Housing
(N = 2)
REACH
(N = 6)
Total
(N = 13) Months
N % N % N % N %
1–3 months 0 0% 0 0% 0 0% 0 0%
3–6 months 2 40% 0 0% 3 50% 5 38%
6–7 months 1 20% 1 50% 0 0% 2 15%
8–9 months 2 40% 1 50% 1 17% 4 31%
10–11 months 0 0% 0 0% 2 33% 2 15%
Total 5 100% 2 100% 6 100% 13 100%
Data source: Monthly Data Collection Instrument

75
The deaths were distributed across the tracking period, occurring in months 4, 5 (1 death each), and 11 (2 deaths).

77

Chapter 5: Housing Tenure
Other Circumstances of Leavers
As part of the data collection for this study, the study team hired local researchers to locate
clients who left the programs. The researchers were experienced in working with homeless
people in each city, but were not affiliated with the Housing First program. The purpose of the
follow-up contacts was to determine where the clients were living, to ask why they left the
Housing First program, and to obtain their views on their program experience. If the local
researcher could not reach the client directly or the client had died, the local researcher contacted
the case manager to learn as much as possible about the client’s program experience and
circumstances.

The local researchers obtained at least some additional information on the circumstances of the
13 leavers. The following summaries briefly recount the experiences of a these clients.

• The local researcher arranged to meet Client 1 at the mental health clinic where he receives
services. Client 1 said that he left his program housing because he was involved in an
altercation with another resident. He said he was provoked by the other resident, and that the
altercation was “more of an impulse” resulting from his mental illness than a premeditated
act. Program staff gave him the choice of leaving or being evicted from his housing, so he
chose to leave. He said he had been happy with his program housing and services, that he
had gotten the help he needed, and that he was working with his case manager to reenter the
program. In the meantime, he was living in a homeless shelter.

• Client 2 had HIV and moved into a convalescent home during his first month in the Housing
First program. Client 2 never returned to his Housing First unit and remained in the
convalescent home, except for a stay in a medical hospital, until his death.

• Client 3 left the Housing First program and could not be located. Prior to leaving, he did not
take medications regularly and staff indicated that Client 3 had untreated psychiatric
symptoms. Client 3 also caused substantial property damage and staff believe that he may
have left the Housing First program because he thought he would be evicted. He had
indicated a desire to leave the program, but staff were not sure why he wanted to leave.

• Client 4 was an immigrant who lived in program housing for about eight months. Client 4
had both an axis I diagnosis and a history of drug use. He did not take his prescribed
medications regularly, if at all, nor was he interested in drug treatment. His case manager
said he was difficult to house because he did not have any immigration paperwork and lost
one housing placement because he did not have proper documents. Client 4 would have
qualified for a green card but refused to apply despite program staff’s encouragement and
assistance. According to program staff, he seemed unconcerned about whether he had
housing or not and eventually asked to be disenrolled from the program. Client 4
occasionally stayed in a shelter until he was barred after a fight.

• Client 5 agreed to move out voluntarily following reports that he was involved in criminal
activity. Client 5 refused to cooperate with the investigation, although staff made numerous
attempts to encourage him to tell his side of the story.

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Chapter 5: Housing Tenure
• Client 6 was in the program for seven months before entering jail. He had been referred to
the program from a psychiatric hospital, where he met a girlfriend. When his girlfriend
decompensated (i.e., experienced a deterioration in psychiatric symptoms in response to
stress), Client 6 did as well. He was then arrested for attempted murder and sent to jail.

• Client 7 disappeared from his program housing four months after entering and could not be
located. The local researcher learned about Client 7 from an outreach worker who had
worked with the client. Client 7 was described as “a wanderer” who did not talk much. He
told the outreach worker he had come from another city several hundred miles away. He had
been housed twice by the Housing First program, but had wandered away from both of these
prior housing situations. The outreach worker described Client 7 as very compliant and good
at taking care of himself, but he would never stay anywhere long enough to get the help he
needed. His speech was disorganized and hard to understand, which may also have
contributed to him not getting the help he needed.

• Prior to a worsening of his mental illness, Client 8 had held odd jobs, had been in a
relationship, and had two children. As his symptoms worsened, however, he entered what
his case manager described as a “vicious cycle” of institutionalization in a county mental
health facility, jail, and homelessness. He spent almost a year in program housing. His case
manager said he had discontinued his medications and was decompensating when he was
admitted to a treatment facility. Shortly after returning to program housing from the
treatment facility he overdosed on medication and passed away.

• Client 9 had HIV/AIDS, as well as a physical disability, a documented mental illness, and a
history of alcohol use. As this client’s physical symptoms worsened, he disenrolled from the
Housing First program and entered a skilled nursing facility.

• Client 10 was a veteran who had been homeless for several years. He had an axis I diagnosis
and reported extremely intrusive voices. He was also a drug user. He left one housing
placement after an altercation with police during which he was injured. After he recovered,
he moved to another building. While in his second placement, he died during another
altercation with police after living in program housing for 10 months.

• Client 11 entered the Housing First program from an alternative sentencing program. During
his eight months in the program, he entered detox for crack on multiple occasions and was
caught carrying a knife. In lieu of time in jail, Client 11 entered a long-term treatment
program and was disenrolled from the program after 90 days.

• Client 12 was a schizophrenic who was dependent on cocaine. He stayed in the Housing
First program for three months until he was incarcerated for behavior related to drug and
alcohol use.

• Client 13 died from a medication overdose. He was schizophrenic with symptoms of
paranoia and auditory hallucinations. His case manager described him as timid. In addition,
he did not speak English well and required an interpreter to communicate effectively. He
lived in at least three housing program units over approximately 18 months, but he would

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Chapter 5: Housing Tenure
periodically disappear. His case manager said he was reluctant to discuss his symptoms, a
response which may have been partly cultural.

CONCLUSIONS

Despite the history of homelessness and severe mental illness of the clients served in the three
Housing First programs, 84 percent (n = 67) of the clients tracked for this study remained
enrolled in the Housing First program at the 12th month. Forty-three percent remained in the
Housing First housing for the full 12 months, 41 percent were “intermittent stayers” and left
during the 12-month period but returned, and 16 percent left the housing or died within the first
12 months. Program staff made substantial efforts to maintain contact with clients even when
they were not in their housing, making it more likely that clients would return from these
temporary departures.

The differences among stayers, intermittent stayers, and leavers are modest, but some patterns
emerge. Leavers and intermittent stayers more often entered the Housing First program from the
streets and were more likely to experience temporary program departures. In addition, both
intermittent stayers and leavers experienced higher levels of impairment related to psychiatric
symptoms during their last month in housing compared to month 12 for stayers. While
69 percent of the study participants overall had a co-occurring axis I diagnosis and history of
substance abuse, co-occurring disorders were even more prevalent among intermittent stayers
and leavers.

These findings indicate that the Housing First approach is achieving considerable positive
housing outcomes with a population with high service needs. Housing problems did occur, and
some of them were serious. However, even at the Housing First program with the highest
reported number of housing problems, the incidence of problems was less than one problem per
client per month. Clearly, within the Housing First approach achieving positive outcomes
requires program policies and procedures that encourage working with clients and landlords to
resolve housing problems when they arise and that enable programs to hold units for clients who
leave temporarily.

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Chapter 6: Outcomes
CHAPTER 6: OUTCOMES

The presumption of the Housing First approach is that, once clients achieve housing stability,
they are better prepared to address their mental illness and substance-related issues. In addition,
program housing combined with support services can help stabilize a client’s financial status and
help promote self-sufficiency. As data presented in Chapter 5 of this report demonstrate, the
Housing First programs have successfully increased housing stability for most of their clients.
For some, that housing stability takes a more episodic form than perhaps most homeless
providers and policy makers might have considered appropriate. This study suggests that
intermittent stays may be a stage in the direction of more fundamental housing, social, and
psychiatric stability.

In addition to housing stability, other important outcomes for Housing First programs would be
reductions in the frequency and severity of psychiatric symptoms, the use of drugs and alcohol,
the level of impairment related to substance use, as well as positive changes in the client’s
income and self-sufficiency. This chapter explores changes in these outcomes across Housing
First programs for the 67 clients who were enrolled in the Housing First program for 12 months.
This subsample includes stayers and intermittent stayers, both of whom were described in
Chapter 5.
76

Case managers in each of the programs reported the outcomes data at baseline and each month
during the 12-month study period.
77
Although these data were subject to the case managers’
judgment, the case managers knew their client’s situation better than other staff members and
could make more informed judgments. Furthermore, the same case manager made the
judgments over time for each client, so there is no inter-rater variability issue (i.e., issues arising
from different raters using different scales). Nevertheless, the judgments were necessarily
subjective, and there is no guarantee that a case manager was entirely consistent across the 12-
month period.

Program staff at the three Housing First programs cautioned that, given the severity of their
clients’ symptoms, they anticipated limited improvements in levels of impairment within
12 months. This presumption is consistent with the findings from the present analysis. Although
clients may experience month-to-month variation in their levels of impairment, the data do not
demonstrate any substantial trends in either psychiatric symptoms or drug or alcohol impairment

76
The study sample included a total of 80 clients across three Housing First programs. During the 12-month study
period, 13 of these clients permanently left the Housing First program. Of the remaining 67 clients, 33 clients are
characterized as intermittent stayers because they experienced at least one temporary departure to another living
environment during the course of the 12-month period and returned to the Housing First program. The remaining 34
clients are characterized as stayers as they spent the entire 12-month period in the program without any temporary
departures. This chapter describes outcomes for the combined subsamples of stayers and intermittent stayers for a
total of 67 clients.
77
Case managers collected baseline data upon a client’s enrollment into the Housing First program. For clients who
were part of the retrospective data collection effort, case managers also collected their baseline information
retrospectively using administrative records. Case managers collected data for month 1 following the end of the first
month during which the client entered the program. Case managers collected data for month 12 following the end of
the client’s twelfth month in the program. For more information about the data collection process, see Appendix A.

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Chapter 6: Outcomes
over the course of the first year in program housing. However, clients’ incomes did increase
slightly over the period (from non-employment sources), although their incomes are still well
below the poverty line.

CHANGE IN IMPAIRMENT RELATED TO PSYCHIATRIC SYMPTOMS

The Housing First programs in this study primarily serve formerly homeless individuals with a
mental illness. Ninety percent (n = 60) of the clients who remained in the program for 12
months had an axis I diagnosis at enrollment—72 percent (n = 43) were diagnosed with
schizophrenia or other psychotic disorders and 27 percent (n = 16) were diagnosed with a mood
disorder.
78
This focus on mental illness points to an important service-related aspect of the three
Housing First programs. Each of these programs provides treatment and service options to
address their clients’ mental illness.

Each of the three programs provides access to psychiatric services, although participation in
services is not required in any of the programs. The Downtown Emergency Service Center
(DESC) provides clients with access to clinical mental health and substance abuse treatment case
managers. A psychiatrist also visits each of the program’s buildings about every two weeks to
meet with clients. At Pathways to Housing, each Assertive Community Treatment (ACT) team
has a part-time psychiatrist who meets with the team on a regular basis to get feedback on the
status of each client and determine which clients should be scheduled for appointments. At
Reaching Out and Engaging to Achieve Consumer Health (REACH), a partner organization with
offices in the same location as the service center provides psychiatric services after clients are
referred by their REACH case managers.

Exhibit 6–1 compares the psychiatric symptoms of clients at baseline and after 12 months in the
program as reported by their case managers. The columns list first the number of clients who
had a given level of impairment at baseline and then the number of clients who experienced a
change in impairment from baseline to month 12. Overall, there was a small increase in the
number of clients with moderate impairment and a corresponding decrease in the number of
clients with severe impairment, suggesting a small amount of improvement in the aggregate.
There was also a small decrease in clients with no psychiatric impairment.

The aggregate change is primarily due to changes among REACH clients. In month 12, REACH
had four fewer clients with severe psychiatric impairment, two more with moderate impairment,
and one more with no impairment than at baseline. Relative to REACH, fewer clients at DESC
and Pathways to Housing had severe psychiatric impairment at baseline and their clients
experienced smaller changes in impairment during the first year in housing.

78
The Diagnostic and Statistical Manual (DSM) of Mental Disorders, published by the American Psychiatric
Association, describes the diagnostic categories of mental disorders and a multiaxial assessment that includes five
axes. Axis I includes severe clinical disorders and other conditions that are expected to be the focus of clinical
treatment. These diagnostic categories include schizophrenia and other psychotic disorders, mood disorders, anxiety
disorders, and other conditions that may need clinical attention (e.g., anxiety or eating disorders). Mood disorders
include depressive disorders, bipolar disorders (characterized by depressive and manic episodes), and substance-
induced mood disorders. Schizophrenia and other psychotic disorders include delusions and hallucinations.

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Chapter 6: Outcomes
Exhibit 6–1. Change in Level of Impairment Related to Psychiatric Symptoms Between
Baseline and Month 12, by Program
DESC
(N = 20)
Pathways to Housing
(N = 24)
REACH
(N = 23)
Total
(N = 67) Level of Impairment Related to
Psychiatric Symptoms
N at
baseline
Change at
month 12
N at
baseline
Change at
month 12
N at
baseline
Change at
month 12
N at
baseline
Change at
month 12
No impairment 5 -1 9 -1 0 +1 14 -1
Moderate impairment 10 -1 11 +2 11 +2 32 +3
Severe impairment 5 +2 4 -1 12 -4 21 -3
Unknown level of impairment 0 0 0 0 0 +1 0 +1
Data source: Baseline Data Collection Instrument, Monthly Data Collection Instrument

Regardless of the level of psychiatric impairment at baseline, exhibit 6–2 suggests that for most
clients (n = 48, 72 percent) the level of impairment changed during at least one month during the
year. Only 28 percent (n = 19) of the clients had the same reported level of psychiatric
symptoms every month during the year.
79
Of the 48 clients who had a reported change in
psychiatric symptoms for at least one month, 33 percent (n = 22) showed improvement, 28
percent (n = 19) were worse, and 10 percent (n = 7) had at least one month when they were better
than baseline and one month when they were worse than baseline. The variation in level of
impairment related to psychiatric symptoms from month to month is reflective of the episodic
character of serious mental illness.

Exhibit 6–2. Change in Level of Impairment Related to Psychiatric Symptoms
Total
(N = 67) Change in Psychiatric Impairment
N %
No change in impairment from baseline 19 28%
Improved level of impairment at least one month (no months of worsened impairment) 22 33%
Fluctuating levels of impairment (improved at least one month and worsened at least one month) 7 10%
Worsened level of impairment at least one month (no months of improvement) 19 28%
Total 67 100%
Data source: Baseline Data Collection Instrument, Monthly Data Collection Instrument

An analysis of changes in impairment levels by baseline impairment level indicated that most
clients had an impairment level different from baseline for at least one month during the year.
Only 21 percent (n = 14) of clients with no impairment at baseline, 34 percent (n = 23) with a
moderate impairment at baseline, and 24 percent (n = 16) with a severe impairment at baseline
had the same reported level of impairment each month of the year. This indicates that even
though the aggregate levels of psychiatric impairments did not change much during the year,
there was substantial movement of individuals across levels of impairment during the period.

79
Of the 48 clients whose level of impairment changed from baseline, eight clients experienced a change for only
one month. If these eight clients were added to the “no change” category, 40 percent of clients would be in the “no
change” category.

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Chapter 6: Outcomes
While some of this movement across levels of impairment may be reporting error, the results
from exhibit 6–1, showing little change in the aggregate between baseline and month 12, and
exhibit 6–2, showing no clear direction of the changes for individuals at any time during the
period, lead to the conclusion that there were no substantial changes in the level of psychiatric
symptoms for clients during the first year in the program.

There are several reasons for a client’s change in the level of impairment related to psychiatric
symptoms. The level of stress in a client’s life—often influenced by level of service provision
and housing stability—can cause the symptoms to become more or less pronounced at any given
time. The client may also have changed medication type or dosage or may have become more or
less consistent in taking prescribed medications. Finally, because a client’s level of psychiatric
symptoms may fluctuate during the month, the case manager’s reported level of impairment may
depend on whether the case manager had contact with the client during good or bad periods.

Exhibit 6–3 indicates the aggregate number of clients with each level of psychiatric impairment
by month. The graph shows that there is no clear upward or downward trend in the number of
clients with no psychiatric symptoms during the period. As discussed earlier, there is a small
decrease in the number of clients with severe psychiatric impairment and a corresponding small
increase in clients with moderate psychiatric impairment, but the graph suggests that this finding
is not necessarily part of a consistent trend. This graph demonstrates the variation in
symptomology over time, which may impact the appropriateness of various housing situations
and services over time.

Exhibit 6–3. Level of Impairment Related to Psychiatric Symptoms, by Month
80
(N = 67)

Moderate
Severe
None
0
5
10
15
20
25
30
35
40
012345678910112
Month
N
um
b
er
of
c
l
i
ent
s

80
The chart does not include clients for whom level of psychiatric impairment was unknown. Month 0 refers to
baseline.

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Chapter 6: Outcomes
PSYCHIATRIC MEDICATION MANAGEMENT

As reported in Chapter 4, the majority of study participants came from the streets or shelters and
met the U.S. Department of Housing and Urban Development (HUD) definition of chronic
homelessness.
81
Despite their history of homelessness, almost 80 percent (n = 53) of clients
were already taking psychiatric medications when they entered Housing First housing. This
finding indicates that a significant share of the clients enrolled in the Housing First programs had
some amount of prior connection with service providers and perhaps had already achieved some
stabilization in their psychiatric symptoms.
82
Given that many clients were already taking
medications, one would not expect to see substantial increases in clients taking medication.
However, the extent to which case managers increase client access to psychiatric medications
and improve the regularity and independence with which clients take their medications are
potentially important outcomes. (See exhibit 6–4.)

Exhibit 6–4. Clients Taking Psychiatric Medications at Baseline, by Program
(N = 20 for DESC, N = 24 for Pathways to Housing, N = 23 for REACH)

83%
(19)
83%
(20)70%
(14)
17%
(4)
17%
(4)
30%
(6)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
DESC Pathways to Housing REACH
Taking psychiatric medication Not taking psychiatric medication

The regularity with which clients took their medications prior to program entry is unknown.
However, once in the Housing First programs, case managers monitored client medication
practices. For this study, case managers reported each month how regularly—never, sometimes
but less than prescribed, or always as prescribed—clients took their prescribed psychiatric
medications during that month. Exhibit 6–5 compares the frequency with which clients took
their psychiatric medications, in aggregate, between month 1 and month 12. This graph shows

81
Of the 67 clients discussed in this chapter, 61 percent lived on the streets (n = 22) or in shelters (n = 19) directly
prior to entering the Housing First program. In addition, 88 percent (n = 59) met at sometime during the last three
years the joint federal definition of chronically homeless. Since almost all the stayers were identified as chronically
homeless at baseline, the outcomes that look at the chronically homeless separately are almost identical to the
outcomes reported in this chapter.
82
Of the 67 clients discussed in this chapter, seven had neither an axis I nor an axis II diagnosis at baseline.
However, most of those not diagnosed at this stage were reported to have psychiatric impairment and to take
medications to treat psychiatric symptoms during the study period.

85

Chapter 6: Outcomes
the increase in percentage of clients who never took their psychiatric medications and the slight
decrease in those who took their psychiatric medications always as prescribed.
83

Exhibit 6–5. Frequency with Which Clients Took Psychiatric Medications
in Months 1 and 12 (N = 67)

9%
(6)
25%
(17)
66%
(44)
16%
(11)
19%
(13)
64%
(43)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Always as prescribed Sometimes, but less than
prescribed
Never
Month 1 Month 12

The apparent decline in the regularity with which clients took psychiatric medications sometimes
but less than prescribed may have resulted from a combination of factors. For example, clients
may have taken their medications less regularly because they were experiencing improvements
in level of impairment. Alternatively, clients may have taken medications with less regularity
because they took them independently or may have made the decision to stop taking their
medications. Case managers reported whether clients were supervised while taking or packaging
psychiatric medications and whether the clients took the medications independently.

Case managers reported level of supervision and independence along the following continuum:

• Supervised by staff while client took medication;
• Staff packaged medications, but client took independently;
• Client packaged medication at agency's office and took independently;
84
and
• Client obtained and took medication independently.

Across the three Housing First programs, only 13 percent (n = 9) of clients were supervised by
staff while taking medications while 34 percent (n = 23) of clients took medications completely
independently. As shown in Exhibit 6–6, clients at DESC experienced the highest level of
medication supervision during their first month in the program and clients at REACH
experienced the most independence in medication management. Also, DESC not only knows

83
Case managers’ reports of the regularity that unsupervised clients (i.e., clients who the case manager or other staff
person did not witness taking the medication) took medication were based on a variety of factors including clients’
self-report, client behavior, and whether the client was timely in refilling the prescription or seeing the psychiatrist
for a new prescription.
84
Packaging medications refers to clients’ practice of keeping medications at an agency office and visiting the office
weekly or monthly to assemble enough medication for the following week or month. The client then takes the
medication independently.

86

Chapter 6: Outcomes
when people are not taking their medications, but the housing-based staff can more easily
monitor whether a client’s medication noncompliance poses a threat to the client or others,
potentially making DESC better able to let people choose to not take their medications.

Exhibit 6–6. Independence of Medication Management in Month 1, by Program
DESC
(N = 20)
Pathways to
Housing
(N = 24)
REACH
(N = 23)
Total
(N = 67) Level of Independence
N % N % N % N %
Supervised by staff while client took medication 8 40% 1 4% 0 0% 9 13%
Staff packaged medications, but client took independently 4 20% 13 54% 0 0% 17 25%
Client packaged medication and took independently 0 0% 5 21% 3 13% 8 12%
Client obtained and took medication independently 2 10% 4 17% 17 74% 23 34%
Client did not take medication 6 30% 1 4% 3 13% 10 15%
Total 20 100% 24 100% 23 100% 67 100%
Data source: Monthly Data Collection Instrument
Note: This information was not available at baseline.

Among the 52 clients who took psychiatric medications during both month 1 and month 12, 10
percent (n = 7) received higher levels of monitoring in month 12, and an additional 10 percent
(n = 7) increased their independence. Most clients did not change their level of independence of
medication management over the first 12 months in the Housing First program. (See exhibit
6–7.)

Exhibit 6–7. Change in Independence of Medication Management Between
Month 1 and Month 12, by Program
DESC
(N = 20)
Pathways to Housing
(N = 24)
REACH
(N = 23)
Total
(N = 67) Level of Independence
N % N % N % N %
Less independence 2 10% 1 4% 4 17% 7 10%
No change 10 50% 16 67% 12 52% 38 57%
More independence 2 10% 1 4% 4 17% 7 10%
Clients not taking medications in
month 1 and month 12
6 30% 6 25% 3 13% 15 22%
Total 20 100% 24 100% 23 100% 67 100%
Data source: Monthly Data Collection Instrument
Note: This information was not available at baseline.

CHANGE IN IMPAIRMENT RELATED TO SUBSTANCE USE

Substance-related disorders frequently co-occur with mental illness among the clients served by
Housing First programs. All three programs in this study either provide substance abuse
counseling and treatment or referrals to other providers for these services. At Pathways to
Housing, a member of each ACT team specializes in substance abuse counseling. In addition,
Pathways to Housing staff refer clients to substance abuse treatment programs and encourage
attendance at Alcoholics or Narcotics Anonymous meetings. DESC and REACH staff also
encourage participation in these meetings and provide related referrals. At REACH, substance

87

Chapter 6: Outcomes
abuse specialists are available to clients by referral. DESC has certified substance abuse
treatment staff at one of their buildings and a full staff of substance abuse treatment professionals
in their licensed substance abuse treatment program division.

All three of the Housing First programs maintain a low demand approach to substance use and
do not require that clients refrain from using drugs or alcohol to obtain or maintain housing. At
DESC and Pathways to Housing, clients are not evicted because of alcohol or drug use, but staff
make it clear to clients that behaviors associated with drug and alcohol use may threaten their
housing.

However, some private landlords who provide housing for REACH clients do not allow drug or
alcohol use on the premises and can evict clients for violating this rule. This is a tension in
REACH’s low demand philosophy. While the client may be threatened with the loss, or actually
lose, his or her housing due to drug or alcohol use on the premises, the client is not disenrolled
from the program. Instead, REACH case managers work with their clients to get a second
chance in his or her current housing or to find alternative housing. This is one reason why some
REACH clients have to make frequent moves before achieving housing stability.

Exhibit 6–8 compares the level of impairment related to substance use of clients at baseline and
after 12 months in the program. The columns list first the number of clients who experienced a
given level of impairment at baseline and then the number of clients who experienced a change
in impairment from baseline to month 12. For each month of the study, case managers reported
on the clients’ use and level of impairment from alcohol use and from drug use. The impairment
level reported here is the highest level of impairment from either alcohol or drug use. At
baseline, 51 percent (n = 34) of clients did not use any substances and an additional
6 percent (n = 4) did not experience any impairment related to substance use. Across all three
programs, the level of severity decreased at month 12 and fewer clients were using or impaired
by using any substances.

Exhibit 6–8. Change in Level of Impairment Related to Substance Use Between
Baseline and Month 12, by Program
DESC
(N = 20)
Pathways to Housing
(N = 24)
REACH
(N = 23)
Total
(N = 67) Level of Impairment Related to
Substance Use
N at
baseline
Change at
month 12
N at
baseline
Change at
month 12
N at
baseline
Change at
month 12
N at
baseline
Change at
month 12
No substance use 9 +1 15 0 10 +4 34 +5
No impairment 3 -3 1 -1 0 +2 4 -2
Moderate impairment 2 +4 5 +1 6 -1 13 +4
Severe impairment 5 -1 3 0 7 -5 15 -6
Unknown level of impairment 1 -1 0 0 0 0 1 -1
Data source: Baseline Data Collection Instrument, Monthly Data Collection Instrument
Note: Level of impairment is the highest level of impairment related to either drug or alcohol use.

88

Chapter 6: Outcomes
REACH clients were slightly more likely than clients from the other two Housing First programs
to have impairments related to substance use at baseline, but were also the most likely to show
improvement from baseline to month 12. For example, 13 REACH clients had moderate or
severe impairments related to substance use at baseline, but only seven had such impairments at
month 12. The number of DESC clients with impairment from substance use increased from
seven to 10 between baseline and month 12 while the number of Pathways to Housing clients
with impairment was virtually unchanged.
85

Exhibit 6–9 shows the aggregate trends over time for the 67 clients enrolled in the Housing First
programs for 12 months. Between baseline (month 0 in the program) and month 12 in the
program, most clients did not use substances. Among those who did, moderate impairment was
most frequent and increased over time. The number of clients with severe impairment appeared
to decrease over time, indicating some decrease in the level of impairment related to substance
use over 12 months.

Exhibit 6–9. Level of Impairment Related to Drug or Alcohol Use, by Month
86
(N = 67)

No substance use
No impairment
Moderate
impairment
Severe impairment
0
5
10
15
20
25
30
35
40
45
50
012345678910112
Month
N
um
ber
of
c
l
i
ent
s

CHANGE IN IMPAIRMENT RELATED TO CO-OCCURRING DISORDERS

The majority of Housing First clients tracked for this study have co-occurring psychiatric
diagnoses and substance use. As described throughout this report, clients’ levels of impairment
related to psychiatric symptoms and substance use vary over time. Exhibit 6–10 compares level
of impairment related to psychiatric symptoms between baseline and month 12 for those who

85
The change in impairments from substance use is driven by changes in impairments from alcohol use, rather than
from impairments in drug use. At baseline, case managers only reported that 18 of the 67 clients that stayed in the
program for 12 months used drugs and this decreased to 17 by month 12. None of the impairment level categories
related to drug use changed by more than two people. For alcohol use, 27 clients were reported to be using alcohol
at baseline and this decreased to 23 by month 12.
86
The number of clients with no impairments related to substance use included those whose level of impairment was
unknown. This included one client in months 0–4. In addition, some clients were living in housing situations at
REACH where there were sobriety requirements; however, not all clients had these requirements.

89

Chapter 6: Outcomes
were currently using substances (either drugs or alcohol) and those who were not. Although
level of psychiatric impairment did not shift a great deal between baseline and month 12, there
was a slight improvement for clients who used substances, as well as for those who did not.
Further, at both baseline and month 12, level of impairment related to psychiatric symptoms was
greater for clients who used substances than for those who did not.

Exhibit 6–10. Level of Impairment Related to Psychiatric Symptoms at
Baseline and Month 12, by Substance Use
Substance Use No Substance Use
Baseline Month 12 Baseline Month 12
Level of Impairment Related to
Psychiatric Symptoms
N % N % N % N %
No psychiatric symptoms 4 12% 2 7% 8 24% 11 28%
No impairment 0 0% 0 0% 2 6% 0 0%
Moderate impairment 18 55% 18 64% 14 41% 17 44%
Severe impairment 11 33% 8 29% 10 29% 10 26%
Unknown level of impairment 0 0% 0 0% 0 0% 1 3%
Total 33 100% 28 100% 34 100% 39 100%
Data source: Baseline Data Collection Instrument, Monthly Data Collection Instrument

CHANGE IN INCOME AND MONEY MANAGEMENT

One presumption of Housing First is that, if a client has stable housing, the client—with support
from the program—will be in a better situation to receive the government benefits for which he
or she is eligible, manage money more effectively, and may eventually be able to obtain
employment. Each of the programs worked with clients to access benefits and to manage their
money. All but 12 percent (n = 8) of the clients had some monthly income at baseline.

Income
DESC and REACH experienced increases between baseline and month 12 in the numbers of
clients with total monthly income greater than $250. Among the 67 clients, the total number of
clients with no income dropped by two people from eight at baseline to six at month 12.
However, between baseline and month 12, the distribution of incomes shifted toward having
higher incomes. Exhibit 6–11 lists the number and percentage of clients at each Housing First
program that had the indicated amounts of total monthly income at baseline and month 12.

90

Chapter 6: Outcomes
Exhibit 6–11. Total Monthly Income at Baseline and Month 12, by Program
DESC
(N = 20)
Pathways to Housing
(N = 24)
REACH
(N = 23)
Total
(N = 67) Monthly Income
Baseline Month 12 Baseline Month 12 Baseline Month 12 Baseline Month 12
$0
0%
(0)
0%
(0)
21%
(5)
13%
(3)
13%
(3)
13%
(3)
12%
(8)
9%
(6)
$1–$250
0%
(0)
0%
(0)
13%
(3)
0%
(0)
9%
(2)
4%
(1)
7%
(5)
1%
(1)
$251–$500
30%
(6)
10%
(2)
0%
(0)
0%
(0)
4%
(1)
0%
(0)
10%
(7)
3%
(2)
$501–$750
60%
(12)
75%
(15)
58%
(14)
54%
(13)
17%
(4)
9%
(2)
45%
(30)
45%
(30)
$751–$1000
10%
(2)
10%
(2)
8%
(2)
4%
(1)
57%
(13)
74%
(17)
25%
(17)
30%
(20)
More than $1000
0%
(0)
5%
(1)
0%
(0)
0%
(0)
0%
(0)
0%
(0)
0%
(0)
1%
(1)
Data source: Baseline Data Collection Instrument, Monthly Data Collection Instrument
Note: The N’s related to the percentages displayed in this table are indicated in the parentheses under each percentage.
Percentages may not sum to 100 percent due to rounding.

At DESC, no clients had monthly income less than $250 at baseline. In contrast, Pathways to
Housing had eight clients and REACH had five clients with monthly incomes below $250.
Though not all incomes increased, the average monthly income of clients across the three
Housing First programs grew from $537 at baseline to $610 during month 12. (See exhibit
6–12.) Overall, Pathways to Housing clients had the lowest average monthly income at baseline
($473) and month 12 ($537). REACH clients had the highest average monthly income at both
points ($610 and $677). DESC clients experienced the greatest average change in monthly
income at $88 between baseline and month 12.

Exhibit 6–12. Average Monthly Income at Baseline and Month 12, by Program
(N = 20 for DESC, N = 24 for Pathways to Housing, N = 23 for REACH)

$528
$473
$610
$537
$616
$537
$677
$610
$0
$100
$200
$300
$400
$500
$600
$700
DESC Pathways to
Housing
REACH Total
A
ver
a
g
e t
o
t
al m
o
n
t
h
ly

i
n
co
m
e
Baseline Month 12

91

Chapter 6: Outcomes
Increased access to several sources of benefits, including Supplemental Security Income and
Social Security Disability Insurance, may account for the increase in average total monthly
income between baseline and month 12. At both DESC and REACH, the number of recipients
of these benefit sources increased from baseline to month 12.
87
No clients reported employment
income to case managers at baseline, month one, or month 12.

Although there was an overall increase in total monthly income between baseline and month 12,
the clients in the Housing First programs still lived in extreme poverty by national standards.
The Federal poverty guidelines published by the U.S. Department of Health and Human Services
indicate that a single person would need to have a monthly income of $798 to be at the Federal
poverty line.
88
The data indicate that less than 30 percent of the clients have incomes above the
poverty line and none have income more than 1.25 times the poverty line. Further, while the
poverty line is set at the same level across the country, each of the Housing First programs
selected for study are located in municipalities with high costs of living and high median family
incomes. The Fiscal Year 2005 HUD income limits released by the Office of Policy
Development & Research indicate that the clients in this study have incomes below 30 percent of
the family-size adjusted median income in their metropolitan area. For HUD programmatic
purposes, income below 30 percent of the area median is categorized as extremely low income.
89

Money Management
To help ensure that clients made staying housed a priority, case managers at each of the Housing
First programs encouraged at least some of their clients to have representative payees.
Representative payees could be a case manager or other program staff member, a family member
or friend, or a nonprofit organization. Representative payees can help ensure that clients pay
their rent and can help them develop money management skills.

At baseline, 54 percent (n = 36) of clients across the three Housing First programs had
representative payees. By month 12, the share of clients with a representative payee was slightly
higher than reported at baseline (n = 38, 57 percent). The program with the largest share of
clients with payees was DESC, where 75 percent (n = 15) of clients had a representative payee at
month 12. At baseline and month 12, more than 70 percent of these clients had DESC as their
payee. In addition, 63 percent (n = 15) of Pathways to Housing clients had a representative
payee at month 12. All of these clients had Pathways to Housing as their payee. In contrast, just
35 percent (n = 8) of REACH clients had a representative payee at month 12, distributed evenly
among the program, relatives, and other nonprofit agencies. (See exhibit 6–13.)

87
The data regarding change in benefit sources between baseline and month 12 are not displayed, because the
benefit sources reported are not accurately linked to total monthly income for all of the Housing First programs.
One Housing First program reported amended total monthly income for baseline, month one, and month 12
following the data collection period. This program did not report updated benefit sources at that time. See
Appendix A for a further discussion of data collection methodology.
88
Federal Register, Vol. 70, No. 33, February 18, 2005, pp. 8373–8375.
89
HUD publishes income limits for Section 8 and public housing. These data contain median family income, as
well as incomes for one-person families. Measures are provided to determine if a person is low-income (annual
income does not exceed 80 percent of the metropolitan area family-size adjusted income) or very low-income
(annual income does not exceed 50 percent of median income), or extremely low income (annual income less than
30% of median income). A person is categorized as extremely low income in Seattle if monthly income is less than
$1363, in New York City if monthly income is less than $1100, and in San Diego if monthly income is less than
$1208. For more information, see http://www.huduser.org/datasets/il/il05/index.html.

92

Chapter 6: Outcomes
Exhibit 6–13. Representative Payee Status at Baseline and Month 12, by Program
(N = 20 for DESC, N = 24 for Pathways to Housing, N = 23 for REACH)
54%
(36)
26%
(6)
71%
(17)
65%
(13)
57%
(38)
35%
(8)
63%
(15)
75%
(15)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
DESC Pathways to Housing REACH Total
Baseline Month 12

Although the prevalence of representative payees increased for DESC and REACH, monthly
data indicated that some clients gained independence in making decisions regarding their money.
Case managers reported the level of clients’ money management skills each month along the
following continuum: client managed own money for needs during the month; client identified
the need and asked for money to purchase items; client identified the need and asked the program
to purchase the items; and program identified the need and purchased items for the client.

Exhibit 6–14 presents the level of money management independence of clients at each Housing
First program during months 1 and 12. At month 1, most clients (n = 47, 70 percent) either
managed their own money or determined how they would use their money but requested money
to purchase items, most likely from their representative payee.

Exhibit 6–14. Money Management Independence at Months 1 and 12, by Program
DESC
(N = 20)
Pathways to
Housing
(N = 24)
REACH
(N = 23)
Total
(N = 67)
Level of Money Management
Independence
Month 1 Month 12 Month 1 Month 12 Month 1 Month 12 Month 1 Month 12
Client managed own money for
needs during the month
40%
(8)
40%
(8)
38%
(9)
42%
(10)
35%
(8)
57%
(13)
37%
(25)
46%
(31)
Client identified the need and asked
for money to purchase items
30%
(6)
50%
(10)
33%
(8)
38%
(9)
13%
(3)
17%
(4)
25%
(17)
34%
(23)
Client identified the need and asked
the program to purchase the items
15%
(3)
6%
(1)
4%
(1)
4%
(1)
4%
(1)
4%
(1)
7%
(5)
4%
(3)
Program identified the need and
purchased items for client
15%
(3)
5%
(1)
4%
(1)
0%
(0)
30%
(7)
9%
(2)
16%
(11)
4%
(3)
Client had no income
0%
(0)
0%
(0)
21%
(5)
17%
(4)
17%
(4)
13%
(3)
13%
(9)
10%
(7)
Total
100%
(20)
100%
(20)
100%
(24)
100%
(24)
100%
(23)
100%
(23)
100%
(67)
100%
(67)
Data source: Monthly Data Collection Instrument
Notes: The N’s related to the percentages displayed in this table are indicated in the parentheses under each percentage. This
information was not available at baseline.

93

Chapter 6: Outcomes
There was a notable increase in clients’ independence in money management over the 12-month
period at each Housing First program. When looking at money management independence in the
aggregate, it is evident that the level of independence increased across all three programs. (See
exhibit 6–15.)

Exhibit 6–15. Distribution of Money Management Independence at Months 1 and 12
(N = 67)

13%
(9)
16%
(11)
7%
(5)
25%
(17)
37%
(25)
10%
(7)
4%
(3)
4%
(3)
34%
(23)
46%
(31)
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Client managed
own money
Client identified
need, asked for
money
Client identified
need, asked the
program to
purchase items
Program
identified need
and purchased
items
Client had no
income
Month 1 Month 12

However, this increase in money management independence did not necessarily result in better
money management ability (as rated by the clients’ case managers, based on their professional
judgment), as shown in exhibit 6–16. These data indicate a fairly static level of money
management ability among clients between month one and month 12. At both DESC and
Pathways to Housing, there was an increase between month one and month 12 in the number of
clients who managed their money poorly—a 5 percent (n = 1) increase at DESC and a 13 percent
(n = 3) increase at Pathways to Housing. Similarly, DESC and Pathways to Housing also
decreased in the number of clients who were managing their money very well—a 15 percent (n =
3) decrease at DESC and an 8 percent (n = 2) decrease at Pathways to Housing. In contrast,
REACH had a decrease of 18 percent (n = 4) of clients who managed money poorly and an
increase of 22 percent (n = 5) of clients who managed money very well between month one and
month 12.

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Chapter 6: Outcomes
Exhibit 6–16. Money Management Ability at Months 1 and 12, by Program
DESC
(N = 20)
Pathways to Housing
(N = 24)
REACH
(N = 23)
Total
(N = 67)
Level of Money Management
Ability
Month 12 Month 1 Month 12 Month 1 Month 12 Month 1 Month 12 Month 1
25% 30% 4% 17% 35% 17% 21% 21%
Poorly
(5) (6) (1) (4) (8) (4) (14) (14)
40% 50% 58% 54% 30% 30% 43% 45%
Moderately
(8) (10) (14) (13) (7) (7) (29) (30)
35% 20% 25% 17% 17% 39% 25% 25%
Very well
(7) (4) (6) (4) (4) (9) (17) (17)
0% 0% 13% 13% 18% 14% 11%
Client had no income
(0) (0) (3) (3) (4) (3) (7)
9%
(6)
Total
100%
(20)
100%
(20)
100%
(24)
100%
(24)
100%
(23)
100%
(23)
100%
(67)
100%
(67)
Data source: Monthly Data Collection Instrument
Notes: The N’s related to the percentages displayed in this table are indicated in the parentheses under each percentage. This
information was not available at baseline.

CONCLUSIONS

This chapter explored five major types of outcomes for the Housing First programs that
participated in this study: level of psychiatric impairment, frequency of psychiatric medication
use, impairment related to substance use, impairment related to co-occurring disorders, and
income and money management. Each of these outcomes was explored for those clients who
remained in the Housing First program for at least 12 months.

Most clients who participated in the study had a psychiatric diagnosis, typically schizophrenia or
another psychotic disorder. According to the case managers’ reports, most clients’ (72 percent)
level of psychiatric impairment was different from baseline for at least one month (and usually
more) at least once during the 12-month period. However, these data did not aggregate into a
noticeable trend of improvement or worsening of psychiatric impairment over the 12-month
study period because the positive and negative changes of individual clients offset each other in
the aggregate. Overall, between baseline and month 12, there was only a slight decrease in the
number of clients judged to have severe psychiatric impairments (from 21 to 18 clients).
Regarding the frequency with which clients took their psychiatric medications, most did not
change their level of frequency over 12 months and they were equally likely to increase or
decrease the level of independence with which they took the medications over the 12-month
period.

Most of the clients reported not using substances at the time of enrollment in the Housing First
program (73 percent did not use drugs and 60 percent did not use alcohol). Impairment related to
both substances dropped slightly at REACH and either increased slightly or remained static at
DESC and Pathways to Housing. For clients with co-occurring disorders, the level of
impairment related to psychiatric symptoms appeared to increase between baseline and month
12. However, due to a great deal of fluctuation in use of substances and related impairment over
12 months, there was no clear trend to suggest overall improvement or deterioration.

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Outcomes across the programs in helping clients achieve increased financial independence seem
mixed. REACH clients seem to have achieved the most improvement in their financial
situations: their incomes were highest, they managed their money most successfully, and they
increased the independence with which they managed their money. Financial independence
outcomes for Pathways to Housing and DESC were less evident. Pathways to Housing clients
managed their money less well later in the study period but did experience modest gains in
income and ability to manage their monthly purchases independently. Fewer clients at DESC
managed their money very well in month 12 and more used representative payees, but average
incomes increased and clients gained some independence in making purchasing decisions.

Individual clients experienced small changes in several outcomes over the 12-month period of
the study; however, these changes did not add up to trends illustrating major improvement or
deterioration among clients. These findings are consistent with program staff expectations that
few clients would experience substantial changes in their first year in program housing. Housing
stability is the major outcome that Housing First programs are able to realize with their clients.

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The key distinguishing feature of the Housing First approach, as described throughout this
report, is a commitment to offer permanent housing first to hard-to-serve homeless persons,
rather than requiring a period of stabilization, sobriety, or commitment to treatment to
demonstrate housing readiness. This paradigm shift of viewing chronically homeless individuals
who have serious mental illness and often co-occurring substance-related disorders as “housing
ready” differentiates the Housing First approach. The Housing First approach is not a single
model, however, but rather a set of general features that communities may interpret somewhat
differently. This study identified a number of these features that appear to contribute to housing
stability for the clients served.

This study is the first multisite study of the implementation and outcomes of the Housing First
approach. While the study is small and exploratory in nature, the findings from the three
Housing First programs selected for study—Downtown Emergency Service Center (DESC),
Pathways to Housing, and Reaching Out and Engaging to Achieve Consumer Health
(REACH)—provide evidence that the Housing First approach, as implemented in these three
programs, can promote housing stability and other positive outcomes for homeless people with
serious mental illness and substance abuse issues.

A large majority of the 80 clients tracked for this study met the U.S. Department of Housing and
Urban Developments (HUD) definition of chronic homelessness at some time during the last 3
years. In addition, clients were extremely poor and had limited work histories and low
educational attainment, all of which can be significant barriers to obtaining and maintaining
housing. Despite these challenges, a substantial proportion (43 percent) of our study sample
remained in housing continuously for a full year. An additional 41 percent were still in the
Housing First program after one year but had spent at least some time away (in some cases
extended periods) from their program housing during that period. While the housing tenure
outcomes are promising, changes in clients’ clinical status—level of impairment related to
psychiatric symptoms and substance use—are limited during the first year.

DESC, Pathways to Housing, and REACH were selected for this study in part because they share
a commitment to serving homeless people with chronic mental illness. These programs
emphasize direct placement into permanent housing and use a service approach that does not
require sobriety or treatment compliance. The programs differed along several dimensions,
including the type of housing utilized, the location and intensity of services, and the use of
representative payees. This chapter reviews and summarizes the program features that appear to
promote housing stability and other positive program outcomes at the three Housing First
programs and suggests implications for HUD policy.

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WHAT MAKES HOUSING FIRST WORK?

With only three sites and broadly similar outcomes across sites, it is difficult to say definitively
which program features are essential to program success. However, based on patterns in
outcomes observed in the client-level data, interviews with program staff and focus groups with
program participants, several program elements emerge as important contributors to program
success at the three Housing First programs. Important elements of the Housing First approach
include access to a substantial supply of permanent housing in which clients want to live and
the provision of a variety of services—utilizing a flexible and responsive staffing structure—to
help clients maintain this housing. To ensure that both housing and services resources are
available, a diverse set of funding opportunities must be available to the program. These
features are discussed in this section.

Access to a Substantial Supply of Permanent Housing
The key similarity among the housing strategies in the three Housing First programs was that
each program has access to a substantial stock of permanent housing for their clients. However,
the three programs differed substantially in the types of housing they offered to program clients.
Each approach offers benefits and challenges.

Pathways to Housing offers scattered-site housing that is secured through a network of private
landlords and management companies. The benefits of the Pathways to Housing model include
the program’s ability to offer clients more choice in both housing and neighborhoods. In
addition, Pathways to Housing is committed to limiting the number of its clients housed in any
given building to promote mainstreaming clients and encourage community integration.
Benefits of this approach include greater opportunities for socialization and community
involvement and reduction in the stigmatizing effects of large concentrations of people with
disabilities in certain buildings. The Pathways to Housing approach is contingent on continued
landlord participation with the program. Landlord participation is encouraged by the fact that
Pathways to Housing holds the lease and then sublets the apartment to the client. This helps
assure landlords that the rent will be paid and that program staff will be available to address any
client issues that arise.

DESC owns or controls the housing where its clients live and also serves as the primary service
provider. This approach allows staff to provide a high level of supervision and offers the
greatest latitude among the three programs in responding to the challenges of housing this
population. Staff are located onsite and can respond immediately to issues that may arise—
from a client causing damage to his apartment to another who may need crisis mental health
services. However, because all of the housing is located in a small number of buildings within
a limited geographic area, this approach does not reduce the stigmatizing effects of
concentrating large numbers of people with disabilities within the community.

The REACH program appears to pose the greatest challenges because the service provider does
not own or control any of the housing, case managers have sizeable caseloads, and the program
is geographically dispersed. In addition, a number of the housing providers that lease to
REACH clients have strict lease requirements regarding substance use, which often result in
these clients experiencing frequent moves before achieving housing stability. Case managers at

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REACH spend a lot of time addressing problems that occur as a result of substance use.
Relocations from one program housing unit to another were more common at REACH than at
the other two programs, due partly to the presence of rules in some of the housing options and
the wide variety of program housing, giving clients a number of housing options from which to
choose.

The functional separation between the lease enforcement activities of a housing provider and
case management support may help clients address problems that could threaten their housing.
However, the study team observed that this separation may also contribute to housing instability
as some clients move because of housing problems. REACH clients were the least likely to
remain stably housed for the full 12 month tracking period. Only 28 percent of REACH clients
were continuously housed with no temporary departures compared to 62 percent at Pathways to
Housing and 40 percent at DESC.

Providing Housing that Clients Like
This study did not focus heavily on collecting data on client satisfaction, but the limited
evidence available indicates that clients are generally satisfied with the permanent supportive
housing offered at the Housing First programs. Forty-three percent (n = 34) of the clients in
this study did not leave their housing at all during the first year, and 41 percent (n = 33) only
left their housing for temporary departures and then returned to the Housing First program. Of
the 16 percent (n = 13) of clients who permanently left the programs during this time, only a
few left voluntarily.

Focus group participants generally reported that they were satisfied with their housing. Clients
at DESC and Pathways to Housing cited the privacy, independence, safety, and quality of their
housing as positive features of their program experience. At REACH, some focus group
participants complained about the quality and safety at some of the housing locations in the
community, but REACH staff independently acknowledged these concerns and described their
work toward possible solutions. Clients at REACH who had temporary program departures
during the 12-month period spent most of that time homeless, which may be an indication of
lack of satisfaction with housing.

Regarding the importance of housing choice, DESC and REACH clearly offer less choice than
Pathways to Housing. However, clients who participated in focus groups said the choice of
housing over homelessness is important to them. Additional research on client satisfaction in
these three Housing First programs (as well as others) is currently underway.
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Preliminary
results from that study indicate that clients are very satisfied with their housing. Further, while
clients view their participation in services as voluntary, they understand that their participation
in services supports their ability to retain their housing. Housing may thus serve as leverage for
service engagement.

Wide Array of Supportive Services
The Housing First programs offer an array of supportive services to help clients maintain their
housing and meet their other needs, including comprehensive mental health services, substance

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Chapter 7: Summary and Implications

abuse treatment, medication assistance, as well as help with independent living skills, such as
money management and housekeeping. Staff are available around the clock to assist clients. At
DESC, each housing location is staffed 24 hours per day and clinical staff are on call during
overnight hours. Similarly, a staff member at REACH and Pathways to Housing is always on
call to respond to issues that may arise.

The use of representative payees seems to be a useful tool for working with some clients in the
areas of independent living skills and money management, but is not as widely used as
expected. None of the programs mandated that all clients have representative payees, although
all strongly encouraged the practice in at least some cases. In theory, representative payees can
help clients ensure that the rent is paid and that other expenses are met, while discouraging
clients from spending their money in ways that may jeopardize their health or housing.
Approximately two-thirds of the clients in the study (n = 53) had a representative payee for at
least one month during the tracking period. Of those who had a representative payee, 59
percent (n = 31) had a staff member from the Housing First program as their payee. Stayers
were more likely than intermittent stayers and leavers to have a representative payee at
baseline, indicating that this support may help to maintain housing stability. Regarding the
leverage of representative payeeship, a study on this issue in the three study sites and other
programs is underway.
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Community-Based, Client-Driven Services
An important feature of a successful Housing First program is a service delivery approach that
emphasizes community-based, client-driven services. Common features of service delivery
across the Housing First programs include a low demand approach to substance use, integrated
substance abuse and mental illness treatment services, and a focus on helping clients develop
skills for independent living.

The Housing First programs emphasize providing services primarily in the housing and the
community where clients live. This means visiting clients at least twice a month, but often
more frequently. While all programs strive to offer services in the community, each program
uses a different strategy due to the different housing types. Pathways to Housing provides
services in the community where clients live through their neighborhood-based Assertive
Community Treatment (ACT) teams. REACH staff have central offices located near
downtown, however, service provision is more challenging because case managers have to
cover a broader geographical area to visit their clients. Because DESC has housing-based staff,
daily client contact is the norm and clinical staff are also based in the organization’s
administrative offices, which are housed in one of the housing locations.

Program staff from all three programs emphasize the importance of client-driven service
planning. Clients take an active role in determining the timing, the nature, and the frequency of
their service plan. Focus group participants expressed appreciation for the “do whatever it
takes” attitude with which case managers approach their work.

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Foundation on Mandated Community Treatment.

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Chapter 7: Summary and Implications

Staffing Structure that Ensures Responsive Service Delivery
The staffing structure for delivering services differs across the three Housing First programs,
but in all cases is designed to ensure that clients’ needs are met. Access to multidisciplinary
staff is clearly important, but the experiences of DESC and REACH indicate that services can
be delivered using a service model different than the ACT teams used at Pathways to Housing.

The nine-member ACT teams at Pathways to Housing include specialists in diverse fields,
including mental health, substance abuse, and employment who meet regularly to discuss
clients’ needs and decide who on the team can most appropriately respond. REACH and DESC
offer similarly diverse services, but do not use the ACT team model. Staff from REACH and
DESC report that their service delivery structures offer a cost-effective alternative to the highly
credentialed, and, they would argue, more costly, ACT team model.

Given the high service needs of program clients, maintaining manageable caseloads is an
important program feature. Caseloads are considerably smaller at Pathways to Housing than at
the other two programs; each nine-member Pathways to Housing ACT team carries a caseload
of 60–70 clients, averaging no more than eight clients per ACT team member. In contract,
DESC’s case managers carry caseloads of about 34 clients, while each REACH case manager
has a maximum caseload of 23 clients.

While caseload to case manager ratios differ across programs, the availability of staff response
24 hours a day is a key similarity among the sites. The use of daily team meetings and
collaborative case planning further enhance coordination and consistency so that staff resources
are immediately responsive to client needs.

Coordinating Services and Communication among Providers
Staff in each of the Housing First programs spend considerable time collectively reviewing the
status of program clients. This review may take place during direct contacts at team meetings
or telephone contacts. All three programs also have automated systems, both for documenting
program activities and client status and, equally importantly, for collecting information on
client outcomes. The Housing First programs make efforts to use outcomes information to
inform adjustments in program service delivery. Pathways to Housing has conducted a
substantial number of studies that document program outcomes, the most recent of which
involved random assignment comparing Pathways to Housing with clients placed in traditional
continuum of care settings (Tsemberis, Gulcur, and Nakae, 2004).

Diverse Funding Streams for Housing and Services
All three Housing First programs serve clients with extremely low incomes and limited
resources to pay for housing, services, and their other day-to-day needs. Clearly, no single
funding source provides sufficient resources to meet the housing and service needs of this
population. Further, it is often the case that service provision is driven by the availability of

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Chapter 7: Summary and Implications

resources. The Housing First programs rely on a variety of funding streams to meet the needs of
their clients.
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All three programs seek Medicaid reimbursement for mental health case management services.
Accessing Medicaid funds requires licensing and administrative sophistication to document and
bill for services appropriately, but program administrators view the administrative demands as
justifiable. All three programs also receive funding for clinical services from state or county
sources—Pathways to Housing receives funding from the New York State Office of Mental
Health, REACH receives funding from the California AB 2034 program, and DESC receives
funding from the King County Human Services Office.

HUD programs subsidize a substantial portion—but not all—of the housing at these programs.
Support from the Supportive Housing Program (including both Transitional and Permanent
Housing), Shelter Plus Care, and Section 8 Moderate Rehabilitation for Single Room
Occupancy (SRO) programs are used to assist clients. Other diverse funding sources allow
expanded options to help cover housing costs on both short- and long-term bases. For example,
state or local funds may cover short-term stays in a hotel while a client is searching for housing
(Pathways to Housing), or rental assistance may be provided to clients who are not eligible for
assistance programs through HUD (REACH).

POLICY IMPLICATIONS FOR HUD

The Housing First programs in this study achieved the important outcome of housing stability
for a hard-to-serve population. This finding, along with the program features that supported
this outcome, lend to the following policy-level implications for HUD.

Housing First Addresses HUD’s Priorities for Homeless Programs
The HUD priorities of addressing chronic homelessness and providing permanent housing are
furthered by these Housing First programs. The programs predominantly serve people who
meet the HUD definition of chronic homelessness and they are achieving a substantial level of
housing stability for this population, although the most impaired clients are still the most likely
to leave.

Transitional Stays Do Occur
Despite Housing First programs’ commitment to place clients directly into permanent housing,
it is important to acknowledge that transitional stays do occur under various circumstances.
First, all of the programs in the study were fully leased. Thus, in some cases, clients are briefly
housed in a hotel, at the Young Men's Christian Association (YMCA), or a similar setting until
a unit becomes available. The safe havens in the REACH and DESC programs have no firm

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The scope of work for this study did not call for an analysis of program costs, but the study team asked each of
the three programs to provide a rough estimate of the annual per client cost of housing and services. The costs
reported seemed low and likely understated services costs. In addition, staff reported that keeping people stably
housed keeps them out of jails and hospitals and recent studies have found this to be true (Gulcur et al., 2003;
Davis, Johnson, and Mayberg, 2003). Therefore, the costs of Housing First programs may be offset by preventing
the use of other more costly community resources, but these offsetting savings were not reflected in the cost
estimates provided.

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time limits, but are viewed as transitional settings. In REACH, some clients stay briefly at the
safe haven until a unit opens elsewhere while others stay longer. At DESC, the safe haven
serves the clients who are least engaged and whom the staff know the least well. DESC’s safe
haven provides a longer-term transition to one of the agency’s SRO hotels.

Lack of Conditions
All three programs offer direct access to housing for a chronically homeless population and use
a service approach that does not require sobriety or treatment compliance. However, only
DESC and Pathways to Housing offer housing without service requirements. At REACH,
many clients enter housing at a safe haven that has a number of occupancy rules, including a
prohibition on drugs and alcohol, a curfew, and assigned chores for all residents. Despite these
requirements, many homeless people do accept the offer of housing. Moreover, significant
numbers of those express satisfaction with their housing once they are in it. The clients who
participated in focus groups preferred accepting housing to the continued hardships of
homelessness. Consistent with the literature, client satisfaction with housing may affect the
level of housing stability.

Tenure and Stability are Viewed Differently in Housing First Programs
An important lesson from this study is that “housing stability” is viewed differently in these
Housing First programs than in most homeless assistance programs. In Housing First
programs, clients’ enrollment status is determined more by their continued contact with case
managers and other service providers and less by whether they are continuously residing in
their program housing. Temporary departures from housing (some of them lengthy) are not
uncommon, but program staff continue to follow up with clients even when they are away from
their housing. Programs hold units for up to 90 days and work with clients to encourage them
to return to program housing. A client is not considered to have “left the program” until he or
she has been gone for 90 days, are no longer in contact with program staff, and are not expected
to return.

Housing Stability Does Not Come Without Challenges
The immediate advantage of the Housing First approach for the chronically homeless
population is that direct placement in housing solves the problem of homelessness. The
dilemma is that obtaining housing does not necessarily resolve other issues that may impede
one’s housing success. Data collected during this study indicate that housing problems do
occur, including problems that would result in the loss of one’s housing in many programs.
Maintaining housing stability requires a service approach that focuses on helping people keep
their housing. It also requires subsidy mechanisms that permit programs to hold units for
people who leave temporarily, as well as a housing supply and program policies that help
people obtain a different unit if they cannot return to their unit following a departure.

Tension Between HUD Policy and Low Demand
HUD resources are an important source of housing subsidies in the Housing First programs
selected for this study. However, tensions do exist between a low demand approach to
substance use—a prominent feature in these programs—and widely-shared governmental
concerns about any criminal activity in HUD-supported housing. In particular, the tension lies
with drug activity.

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This tension may...

Chapter 7: Summary and Implications

associated with...

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By studying the...

APPENDIX A: METHODOLOGY

This appendix presents a description of the data collection process for the current study. The
overall approach to this study included four main tasks:

• Canvass Housing First programs in the United States that serve individuals with a serious
mental illness and develop criteria to select two study sites, in addition to Pathways to
Housing, for in-depth analysis of the program characteristics and client outcomes;

• Engage the three selected Housing First programs by conducting baseline and followup site
visits, interviewing program staff, and gathering detailed information about the operation of
the program;

• Select and track formerly homeless study participants over a 12-month period at each site,
engage local researchers to interview the participants who left the program within 12 months
of placement, and conduct focus groups with participants; and

• Analyze tracking and focus group data to compare outcomes across sites.

Standard data collection instruments are located at the end of the Appendix.

CANVASS HOUSING FIRST PROGRAMS

The canvass identified Housing First programs across the country. In addition to addressing the
research questions, the most important purpose of the canvass was to identify two sites, in
addition to Pathways to Housing—the first Housing First program and the most notable to date—
that met the requirements for the study. These requirements included:

• The program had been in operation for at least one year;

• The program enrolled at least eight new clients per month or, short of that, could incorporate
25 retrospective placements from no longer than 6 months prior to the study data collection
period;

• The program had good data collection and client tracking procedures; and

• The program indicated a willingness to participate in the study.

The most suitable sites for further study needed to serve a similar population with a minimal
number of operational differences from Pathways to Housing. In addition, the sites needed to
present some variability to the “essential complements” that the Pathways to Housing considered
important to clients’ success:

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Appendix A: Methodology
• A strong emphasis on client choice in housing, resulting in clients living in dispersed
apartments owned by private landlords;

• A service approach that did not co-locate housing and services; and

• Widespread use of the program as clients’ representative payee.

To identify programs to participate in canvass discussions, the study team contacted sources
identified in Walter R. McDonald & Associates, Inc.’s (WRMA) and Abt Associates’ previous
studies of homelessness, as well as national experts in homelessness. These contacts included
staff from the U.S. Department of Housing and Urban Development Headquarters and field
offices, the National Alliance to End Homelessness, Center for Urban Studies, Interagency
Council on the Homeless Regional Coordinators, the Corporation for Supportive Housing, state
and local departments of mental health services, housing developers, and mental health and
homelessness consortia. As the study team identified Housing First programs, staff at some
programs also offered additional contacts.

The discussions addressed the basic features of each program, including type of housing offered,
scale of the program, target population, referral source, and conditions that clients must meet for
housing. Specifically, these discussions enabled the study team to identify programs that met the
following criteria that define Housing First for this study.

• The direct, or nearly direct, placement of targeted homeless people into permanent housing.
Even though the initial housing placement may be transitional in nature, the program
commits to ensuring that the client is housed permanently.

• While supportive services will be offered and made readily available, the program does not
require participation in these services to remain in the housing.

• The use of assertive outreach to engage and offer housing to homeless people with mental
illness who are reluctant to enter shelters or engage in services. Once in housing, a low-
demand approach accommodates client alcohol and substance use, so that “relapse” or
increased substance use will not result in the client losing housing (Marlatt and Tapert,
1993).

• The continued effort to provide case management and to hold housing for clients, even if
they leave their program housing for short periods.

The canvass provided a wealth of information about the current status of Housing First programs
across the country as of late 2003. The study team conducted canvass discussions with
33 programs—nine incorporated the key features of the Housing First model and 14 incorporated
many of the key features---but did not target single unaccompanied adults with a serious mental
illness. The study team did not consider the remaining 10 programs Housing First because clients
were required to participate in treatment prior to placement, or because the program did not
primarily serve homeless people.

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The two programs most suitable for further study that were not also participating in the Initiative
to End Chronic Homelessness—Downtown Emergency Service Center (DESC) and Reaching
Out and Engaging to Achieve Consumer Health (REACH)—had the most key features of the
Housing First approach, the best comparability to the Pathways to Housing program model, and
commensurability with the other study requirements.

ENGAGE HOUSING FIRST PROGRAMS

Following the canvass and site selection process, the study team worked with each of the
selected sites to secure their agreement to participate in the study. The program staff members
were instrumental in providing information about the operations of the Housing First programs,
selecting and tracking the study sample, and working with the study team to ensure that data
were accurate. The study team visited each site twice during the course of the study—once at
baseline and the second time following the conclusion of data collection activities. The work
conducted during the site visits is described in this section. Prior to the site visits, the study team
worked with the sites to develop a memorandum of understanding (MOU) to guide the research
process over the next 12 months.

Memorandum of Understanding
During the site recruitment process, the study team developed a MOU with each of the study
sites. The MOUs covered the roles and responsibilities of site staff as well as of the study team,
the terms for incentive payments, and expectations for data collection, including initial and final
site visits, client recruitment for the study, and monthly status reporting. Each MOU:

• Identified the key staff contacts at the site and at WRMA and Abt Associates;
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• Described the sample selection and baseline data collection processes;

• Identified the data elements collected during monthly monitoring and how the information
would be reported to WRMA and Abt Associates;

• Specified the process to track participants who left the Housing First program;

• Determined when and under what conditions the site would receive the incentive payment for
participating in the study; and

• Described the process for recruiting focus group members and handling arrangements for the
focus groups that were conducted during the final site visit.

Baseline Site Visit
The baseline site visits enabled the study team to gain a better understanding of the Housing First
program and setting, build a relationship with program staff and address any concerns about the
study, determine acceptable procedures for selecting and engaging clients, and solidify site-
specific data collection procedures. The site visits lasted 2 days and included a senior researcher

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WRMA staff monitored Pathways to Housing and Project REACH, and Abt Associates monitored DESC.

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from both Walter R. McDonald & Associates, Inc. (WRMA) and Abt Associates. The primary
objectives of the site visits were:

• To collect information on program design to expand upon the information collected during
the canvass of Housing First programs;

• To confirm the conditions stated in the draft MOU between the study site and the project 

team;

• To train program staff to recruit participants for the study, administer the informed consent
process, and report monthly tracking data;

• To commence the process of selecting the sample of participants to be tracked during the
course of the study;

• To collect baseline data on any available prospective or retrospective study participants; and

• To tour examples of the permanent housing offered to participants.

During the initial site visit, the study team trained staff involved with client recruitment and
tracking on how to obtain informed consent and complete the monthly tracking forms. To
minimize the differences in sample selection procedures across sites, the training focused on the
selection of a retrospective sample as well as new client enrollment. The study team also worked
with the programs to be as consistent as possible with program policies for obtaining clients’
informed consent to agree to participate in the study, as well as assuring confidentiality of all
information gathered for the study.

From the canvass calls and followup calls to selected sites, the study team already had some
information about the selected programs. However, the study team used the site visits to obtain
more information about how the programs operate and to analyze their outcomes. The site visit
focused on the following topics:

• Client Population;
• Program Attributes;
• Housing Attributes;
• Supportive Services; and
• Data Collection.

Follow-up Site Visit
Prior to the follow-up site visits, the study team prepared preliminary analyses of the tracking
data for each site to assess results regarding participant tenure, engagement in services, and
reasons for departure and destinations for leavers. The site visit provided an opportunity to
review the features of the program and discuss any changes with staff in greater depth, including
why a change was made and what effect the changes have had on participants’ program
experience. In addition, the study team conducted several focus groups with program

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participants during the follow-up site visits—the methodology for the focus groups is described
later in this appendix.

The issues addressed during the follow-up site visits included the following:

• Changes in key program features since initial visit (e.g., changes in housing options,
requirements for admission or continued occupancy, lease arrangements, location of services,
and use of representative payees);

• Review of preliminary analyses of participant outcomes (participant tenure, engagement in
services, reasons for leaving and destinations for leavers, and resolution of any outstanding
data collection issues); and

• Themes elicited from focus groups with participants.

Based on the information collected during the site visits, the study team wrote site descriptions
for each Housing First programs. Staff at each of the programs reviewed the descriptions to
check for accuracy and completeness.

SELECT AND TRACK STUDY PARTICIPANTS

The study team worked with each of the sites to select and track program participants over a
period of 12 months. This section describes the sample selection and informed consent process.
The baseline, retrospective, and monthly data collection processes are described as well. The
study team also worked with external trackers to gather information about program leavers and
conducted focus groups at the close of the 12-month data collection period to elicit feedback
from study participants regarding the Housing First program.

Sample Selection
During the baseline site visit to each of the sites, the study team instructed the sites to select the
first 25 clients who entered the Housing First program between April and June 2004 and were
unaccompanied (not part of a homeless family), severely mentally ill, and willing to participate
in the study.
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Staff at the Housing First programs confirmed that the clients included in the
study sample are representative of the overall population of the programs. During the sample
selection process, each program had a number of clients refuse to participate in the study or the
program chose to skip them. Although human subjects research standards prohibit asking a
prospective study participant why he or she does not want to participate, program staff
subsequently offered possible reasons for such refusal.

• At DESC, five clients refused to participate in the study. DESC staff believe their refusal was
related to mental illness, including suspiciousness and paranoia. One of these was a client
who had entered the program and left before the study enrollment began. She was offered
the opportunity to join the study, but declined.

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Two of the study sites recruited more than 25 participants to track over 12 months. The sample at Pathways to
Housing was 26 and the sample at Project REACH was 29.

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Appendix A: Methodology
• At REACH, seven clients could not consent due to the nature or acuteness of their mental
illness; five clients were not homeless; 10 clients would not be cooperative with the study, as
determined by REACH staff; two refused to participate in the study; and one was missing
from the program.

• At Pathways to Housing, there were no refusals and two skips because the clients were
unavailable for enrollment, for unknown reasons.

Because the Housing First programs selected for study had a fairly low turnover rate and a small
volume of new enrollments each month, the study relied on a largely retrospective sample. The
balance of retrospective and prospective cases in the sample was determined by the volume of
new placements entering the program during the 3-month enrollment period of the study. The
study team also requested that program staff attempt to enroll participants who entered and left
the program before study recruitment started—this was the case of one prospective study
participant at DESC who refused to participate. Approximately one-half of the study sample was
retrospective (i.e., enrolled in the Housing First program prior to the study enrollment period,
which began in May 2004). (See exhibit A–1.)

Exhibit A–1. Enrollment of Study Sample
DESC
Pathways to
Housing
REACH Total
Date of Enrollment
N % N % N % N %
June 2003–August 2003 0 0% 6 23% 1 3% 7 9%
September 2003–November 2003 8 32% 1 4% 5 17% 14 18%
December 2003–February 2004 8 32% 5 19% 8 28% 21 26%
March 2004–May 2004 9 36% 10 39% 13 45% 32 40%
June 2004–August 2004 0 0% 4 15% 2 7% 6 8%
Total 25 100% 26 100% 29 100% 80 100%

Informed Consent
The study team worked with the Housing First programs to consistently obtain clients’ informed
consent to agree to participate in the study, as well as to assure confidentiality of all client
information gathered for the study. Informed consent covered information about the purpose of
the study, use of the data, assurances of confidentiality, contact persons who would know the
participant’s location, and permission to obtain information about the participant from the
service provider. (See exhibit A–4 at the end of this appendix for the Informed Consent Form.)

Data Collection
The study team tracked the full study sample of 80 cases on housing status, location, and other
key outcome variables for the 12-month period following their program enrollment. To track
these data, the study team relied on baseline and monthly data submitted by the Housing First
programs. The study team trained staff at the programs to complete the baseline and monthly
tracking forms. Because most clients stayed in the Housing First programs, this approach to data
collection was feasible. If larger numbers of clients had left the Housing First programs, this
approach might have been unworkable. The rate of departure for those clients at REACH who
either refused participation in the study or were skipped was similar to that of the sample tracked

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Appendix A: Methodology
for the study. Of the 25 clients who refused or were skipped, four have left the program
(compared to six clients leaving REACH of the 29 clients who participated in the study).

The study team relied on a number of different case managers as well as administrative data
sources to collect the data. To ensure consistent reporting, the study team provided training and
ongoing assistance; however, respondent variability constitutes a limitation of the methodology.
The rationale for this method to collect data is the clear impression that case managers would
provide more accurate information than self report for some variables such as level of
impairment related to psychiatric symptoms or substance use.

An additional limitation of the study methodology was collecting participant data retrospectively.
Such an approach requires case managers to recollect or reconstruct information, and it thus may
result in less variation across months because data for several months are reported
simultaneously. In addition, the study team requested that case managers consult case files and
assessment instruments to establish the most accurate responses for each data item at each point
in time. To address this limitation during the data analysis phase, the study team studied changes
in monthly trends by quarter or across longer spans of time such as between the first month of
tenure and month 12.

The study team provided two incentive payments to the sites to encourage timely submission of
monthly tracking forms. The Housing First programs received the first payment after it enrolled
its sample and the second payment after it collected a full 12 months of data on the members of
the study sample who still remained in the Housing First program.

All data collection and participant tracking procedures were vetted with Abt’s Institutional
Review Board prior to implementation.

Baseline Data Collection
Once the sites selected the sample and the participants signed the Informed Consent Form, the
sites collected baseline information on all participants. The study sites submitted baseline data
shortly following the receipt of informed consent from each of the study participants. (See
exhibit A5 at the end of this appendix for the Baseline Data Collection Instrument.)

Retrospective and Monthly Data Collection
For each month that a study participant was in the Housing First program, the study site
submitted a standard set of monthly data. For retrospective study participants, the study sites
submitted all retrospective months of data with the first prospective monthly data. These data
were the same although the study team developed a retrospective data collection form so that
sites could easily report 6 months of data on one form. The study sites typically submitted these
data to the study team one month following the month for which the data were collected. The
study sites submitted these data for every month that the study participant was in the Housing
First program. (See exhibit A–6 at the end of this appendix for the Monthly Data Collection
Instrument.)

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Appendix A: Methodology
Tracking Leavers
The study sites were unable to provide monthly tracking data for those study participants who
left the Housing First program in less than 12 months. To gather information about the leavers,
the study team hired local researchers at each of the program locations to gather information
about the participants who left the program. The local researchers provided information about
the circumstances of the participants’ departures and, if the local researcher was able to find such
information, where the participant was living following the leave from the Housing First
program. (See exhibit A–2.)

Exhibit A–2. Client Tenure in Housing First Programs
DESC
Pathways to
Housing
REACH Total Date of
Enrollment
N % N % N % N %
Leavers 5 20% 2 8% 6 21% 13 16%
Stayers 20 80% 24 92% 23 79% 67 84%
Total 25 100% 26 100% 29 100% 80 100%

Focus Groups
To obtain participants’ perspectives on the quality of their housing, satisfaction with their
housing, and their “quality of life” experience with the Housing First program during their first
year of placement, the study team conducted several focus groups at each of the study sites.
These groups elicited client opinion on components of each program, such as use of the
representative payee strategies and the program’s housing options, to address the question of
why different approaches seem to work well. The focus group moderator asked clients how they
came to the Housing First program and their satisfaction with the program, as well as their
feedback on how the Housing First program compares to other programs. The rationale for using
focus groups was based on the study team’s past experience in utilizing this data collection
methodology effectively with the target population of this study.

Several weeks in advance of the followup site visits, the study team sent invitations to the study
sites for participants to attend focus groups. The hope was that the local trackers would be able
to personally contact each client who left the program and invite them to a separate focus group;
however, they were not able to do so and the study team was not able to conduct a “leavers-only”
focus group. To increase focus group participation among the stayers, the study team provided
food and offered participants a $10 incentive. The study team conducted two focus groups at
DESC and REACH and three at Pathways to Housing. The focus groups ranged in size from 1
to 11 participants, with a total of 27 participants. Pathways to Housing had the smallest number
of participants, most likely because it took place at the first of the month when clients received
their benefits. (See exhibit A–3.)

Exhibit A–3. Client Participation in Focus Groups
Focus Group DESC
Pathways to
Housing
REACH Total
Focus Group 1 7 1 11 18
Focus Group 2 2 3 3 8
Focus Group 3 1 1
Total 9 5 14 27

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Appendix A: Methodology
The turnout for the focus groups was less than the study team had hoped, particularly at
Pathways to Housing. However, the study team did take advantage of all opportunities to speak
with clients about their program experience, whether in a focus group setting or in more informal
discussions with one or two people. An experienced moderator from the study team led the
focus groups and followed a discussion guide that included general questions as well as probes to
stimulate conversation. The moderator was accompanied by a second person to take notes, help
coordinate the event, and record the sessions.

During the analysis phase of the study, the study team reviewed the focus group notes and
incorporated the focus group participants’ opinions and observations in the site profiles prepared
for each Housing First program. The focus group participants provided useful insights on how
clients enter the programs, whether they had choices in their housing or services, and how
satisfied they were with their program experiences. Large numbers of clients did not participate
in the focus groups and the views of those present are not representative of all clients at each
Housing First program, but their input provided useful “reality checks” for the information
obtained from program staff. (See exhibit A–7 for Focus Group Discussion Guides.)

DATA ANALYSIS

The study team collected the baseline and monthly tracking data from each of the study sites and
entered it into an ACCESS file. The members of the study team who entered the baseline and
monthly data provided the first stage of the quality control review by reviewing the information
provided by site staff for completeness and clarity. The study team worked with the study sites
to resolve obvious problems with the data. The second stage of quality control was the validation
process. The study team developed an automated program to identify inconsistencies with the
data. The study team analyzed the data using SPSS. The analysis included only descriptive
statistics as the sample sizes were not sufficient to run inferential statistics.

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Appendix A. Methodology

Exhibit A–4.
Housing First Informed Consent Form

Two research firms, Walter R. McDonald & Associates, Inc. (WRMA) and Abt Associates, are
doing a study for the U.S. Department of Housing and Urban Development. The study is about
homeless assistance programs. They would like to learn about your experiences during the year
after you enter [Housing First Program] housing.

We are asking you to participate in this important study. Your participation in the study will
help us learn more about helping people in the same situation as you. Participating in the study
involves several steps:

• Your service coordinator will share information about your housing services with the
researchers, but the information will not have your name on it.

• Research staff will contact you if you leave [Housing First Program] housing during the next
year. They will ask you about your current housing and why you left the program. It is up to
you whether you answer their questions or not.

• You will be asked to take a survey that asks you what you think about [Housing First
Program] housing and the choices you made about your housing and care while you were in
[Housing First Program] housing. Your information will be shared with research staff from
the University of Virginia so they can contact you for this survey and so they can analyze the
survey responses. You may say yes or no when they ask you to take the survey. You will be
paid $10 if you take the survey.

• You will be asked to join a group to talk about your experiences in [Housing First Program]
housing. This group will be held about one year from now. You can choose at that time
whether or not you want to be in the group discussion. You will be paid $10 if you are in the
group discussion.

People involved with the research will follow strict rules to protect your privacy to the extent
provided by law. Your name will not be in any reports about the study and your name and
personal information will not be given to anyone who is not on the research team, unless you tell
us something that makes us worry about your safety or the safety of someone else. We would
ONLY do this if we thought you could be harmed or someone else is in danger. Even though we
do many things to protect your privacy, there is still a small risk that someone not on the research
team might find out information about you.

You may choose whether or not to be in this study. Your choice will not affect services you get
now or in the future. You may stop taking part in the study any time you wish. If you choose to
stop being in the study, please call a researcher using the toll-free phone number at the bottom of
the page.

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Appendix A: Methodology
?‰ YES. I have read this form and want to be in this study. I understand that personal
information will be kept private. I understand that neither my name nor any other personally
identifying information will be used in any study report or in any data set.

___________________ ____________________ ______________
Name (print) Signature Date

Please feel free to call Dr. Carol Pearson at 1-800-570-0837 (a toll-free call) if you have
questions about the study. Carol is the Project Director at WRMA.  You may also call Marianne
Beauregard with Abt Associates at 617–349–2852 (a toll call or call collect) if you have any
questions about your rights as a study participant.

The consent is valid for 13 months after the date it is signed, unless you notify us to end the
consent earlier. Please keep a copy of this form for your own records.

HOUSING FIRST CONSENT TO CONTACT SECONDARY CONTACT PERSON

If [Housing First Program] staff do not know where you live at some point during the study, we
would still like to contact you. We will only ask these contact people where to find you. We
will tell them you are participating in an important study and gave us permission to contact them.
We will not provide any other information to the contact person on the study or your situation.
Is there someone we can contact who will usually know where to find you? [Yes/ No]
If Yes, Please provide the following information:

Name
Primary telephone number
Second telephone number
Street address
City
State
Zip code
What is his or her relationship to you?

Is there a second person who also usually knows where to find you? [Yes/ No]
If Yes, Please provide the following information:

Name
Primary telephone number
Second telephone number
Street address
City
State
Zip code
What is his or her relationship to you?

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Appendix A: Methodology
MAY WE CONTACT THESE PEOPLE TO FIND OUT HOW TO REACH YOU?

?‰ YES. You may contact the above named persons to find me during the study period.

___________________ ____________________ ______________
Name (print) Signature Date

Please feel free to contact Carol Pearson, the Project Director at WRMA, at 1-800-570-0837 if
you have questions about the study. You may also contact Marianne Beauregard with Abt
Associates at 617-349-2852 (a toll call or call collect) if you have questions or concerns about
your rights as a study participant.

The consent is valid for 13 months after the date it is signed, unless you notify us to end the
consent earlier. Please keep a copy of this form for your own records.

DOCUMENTATION OF CAPACITY TO PROVIDE INFORMED CONSENT

The consent interviewer (the person presenting the informed consent document to the potential
study participant) has to determine whether the potential study participant appears to have the
decision-making capacity to provide consent for participation in the study. The attached sheet
contains some questions the consent interviewer should ask the potential study participant to help
determine whether the client appears capable of making the consent decision.

Specifically, the interviewer should assess a potential study participant for the ability to:

• Demonstrate evidence of making a choice; that is, to communicate a yes or no decision;

• Understand relevant information; that is the person can tell the interviewer what the research
procedures involve and what the consent information includes (e.g., right to withdraw); and

• Appreciate the situation and its likely consequences. The person can understand what
research participation involves for him or her and what the likely outcomes are, and he or she
can apply the information to his or her own situation.

After the consent interviewer has determined whether or not the potential study participant
appears to have the ability to make a consent decision, they should record their finding below
and sign and date the form.

Interviewer’s Assessment of the Apparent Capacity of Potential Study Participant To
Provide Informed Consent
I examined (name of client) on ( month/day/year) for the purpose of determining whether he/she
is capable of understanding the purpose, nature, risks, benefits and alternatives (including non-
participation) of the research, making a decision about participation, and understanding that the
decision about participation in the research will involve no penalty or loss of benefits to which
the patient is otherwise entitled, for the Housing First study.

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Appendix A: Methodology
On the basis of this examination I have arrived at the conclusion that: (Check appropriate box.)

?† This person has the capacity at this time to make informed consent;
?† There is a doubt about this client’s capacity to make informed consent; or
?† This client clearly lacks the capacity to make informed consent at this time.

Signature:

Date:

QUESTIONS FOR DETERMINING WHETHER THE CLIENT APPEARS CAPABLE
OF PROVIDING INFORMED CONSENT

The following questions for the potential study participant will help the consent interviewer
determine whether the potential study participant appears to have the decision-making capacity
to provide informed consent. This is not a pass/fail test. It is perfectly acceptable for the consent
interviewer to take on an “educator” role during this process and should continue to do so until
the person understands the information and is able to provide correct answers, or it becomes
clear that the prospective subject is decisionally impaired and cannot provide informed consent.

Questions should be open-ended and include:

• Can you tell me what will happen if you agree to take part in the study? (Example of
information respondents should know.) Researchers will have access to some of the
information you provide to the housing first program and will try to contact you in the future
for a survey and a discussion group.

• Who will see the information you provide as part of the study? (Example of information
respondents should know.) Only a small group of researchers. They will not share your
information with anyone outside the research team, except in aggregate form so you cannot
be individually identified.

• Will the study benefit you? (Example of information respondents should know.) There are
no direct benefits to the study participants. However, the goal of the study is to learn more
about how to help people in the future who are in a similar situation.

• Do you have to be in this study? (Example of information respondents should know.) No.
Participation in this study is voluntary and won’t affect the services or benefits you are
eligible for or receive.

• Can you leave the study once it begins? (Example of information respondents should know.)
Yes. You can stop participating in the study any time you want. Just tell any researcher who
contacts you that you no longer want to participate or call the telephone numbers on the
consent form.

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Appendix A: Methodology
Exhibit A–5.
Baseline Data Collection Instrument

HOUSING FIRST STUDY
CLIENT IDENTIFICATION INFORMATION

Client ID Number
Site ID
Client Name
Date Information Collected

Street Address
Apt. Number
City
State
Zip Code

Primary Case Manager

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Appendix A: Methodology
HOUSING FIRST STUDY
BASELINE INFORMATION

Client ID Number
Site ID
Date Information Collected

A1. Year of birth: ______
YYYY

B1. Gender (circle one)

Male 1
Female 2

C1. Veteran (circle one)

NO 0
YES 1

D1. Ethnicity: Hispanic or Latino? (circle one)

NO 0
YES 1

E1. Race (circle all that apply)

American Indian or Alaskan Native 1
Asian 2
Black or African American 3
Native Hawaiian or other Pacific Islander 4
White 5

F1. What was the prior living situation for the client? (circle one)

Streets or other places not meant for human habitation 1
Homeless shelter 2
Jail or prison 3
Substance abuse treatment facility 4
Psychiatric hospital 5
Unknown 6
Other (specify: _______________________) 7

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Appendix A: Methodology
G1. Does the client have children under age 18? (circle one) 

NO [go to H1] 0
YES 1
DON’T KNOW 2

G2. How many children under age 18 does the client have? # _____

G3–6. What are the children’s ages and with whom do they live? If client has more than
one child under the age of 18, list the 4 youngest children. Do not include an
address, but with whom the children live (e.g., foster care, other parent, relatives,
friends).

Age Where living
G3. Child 1
G4. Child 2
G5. Child 3
G6. Child 4

H1–9. Types of income and benefits (circle no or yes for each option)

Income or Benefit Sources NO YES
H1. Supplemental Security Income (SSI) 0 1
H2. Social Security Disability Income (SSDI) 0 1
H3. Welfare (TANF, GA, State or City program) 0 1
H4. Veteran’s income benefits 0 1
H5. Employment income 0 1
H6. Subsidized health insurance (Medicaid, Medicare, Veteran’s) 0 1
H7. Unsubsidized health insurance 0 1
H8. Food Stamps 0 1
H9. Other (specify:____________________________________) 0 1

I1. Total monthly income: $______.00

J1. Does the client have a representative payee?

NO [go to K1] 0
YES 1

J2. Who is the client’s representative payee?

Housing First Program 1
Relative (specify: ___________________) 2
Other (specify:_____________________) 3

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Appendix A: Methodology
K1. Does the client have an axis I diagnosis? (circle one)

NO [go to K3] 0
YES 1

K2. What is the client’s axis I diagnosis? (briefly describe diagnosis)

K3. Does the client have an axis II diagnosis? (circle one)

NO [go to K5] 0
YES 1

K4. What is the client’s axis II diagnosis? (briefly describe diagnosis)

K5. Is the client experiencing symptoms related to mental illness or psychiatric
problems? (circle one)

NO [go to L1] 0
YES 1

K6. What level of impairment is the client experiencing due to symptoms related to
mental illness or psychiatric problems? (circle one)

None 1
Moderate 2
Severe 3
Unknown 4

L1. Does the client have a history of substance use? (circle one)

NO [go to M1] 0
YES 1

L2. What were the substances the client used? (circle one)

Alcohol 1
Drugs 2
Alcohol and drugs 3

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Appendix A: Methodology
L3. Was the client ever treated for substance abuse? (circle one)

NO 0
YES 1

M1. Is the client currently using drugs? (circle one)

NO [go to M3] 0
YES 1

M2. What is the client’s current level of impairment as a result of drug use?
(circle one)

None 1
Moderate 2
Severe 3
Unknown 4

M3. Is the client currently using alcohol? (circle one)

NO [go to N1] 0
YES 1

M4. What is the client’s current level of impairment as a result of alcohol use?
(circle one)

None 1
Moderate 2
Severe 3
Unknown 4

N1–6. Does the client have any other special needs? (circle no or yes for each option)

Special Needs NO YES
N1. Developmental disability 0 1
N2. Physical disability 0 1
N3. HIV/AIDS and related diseases 0 1
N4. Victim of domestic violence 0 1
N5. First language is not English 0 1
N6. Other (specify: _____________________________) 0 1

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Appendix A: Methodology
O1. Has the client ever been arrested? (circle one)

NO [go to P1] 0
YES 1
DON’T KNOW 2

O2. Number of times the client has been arrested in past 3 years: #_____

O3. Was the client ever incarcerated? (circle one)

NO [go to O5] 0
YES 1
DON’T KNOW 2

O4. Is the client currently on probation or parole? (circle one)

NO 0
YES 1
DON’T KNOW 2

P1. Is the client currently taking psychiatric medications? (circle one)

NO 0
YES 1

Q1. Has the client been hospitalized for psychiatric reasons? (circle one)

NO [go to R1] 0
YES 1

Q2. Number of days client spent in psychiatric hospital in past 3 years: #_____

R1. Has the client had other psychiatric treatment (e.g., outpatient therapy, short-
term residential treatment, respite care)? (circle one)

NO 0
YES 1

S1. Does the client have chronic medical condition(s) such as heart disease,
diabetes, mobility impairment, or asthma? (circle one)

NO 0
YES 1

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Appendix A: Methodology
T 1–5. Please tell us the client’s residential history (including institutions and temporary
situations) for the 30 days prior to placement.

Record the type of housing where the client was living. Types of housing may
include homelessness, jail or prison, brief residential transitions with friends and
family, and hospitalizations (indicate medical, psychiatric, or detox/rehab).

Record the duration (number of days) that the client lived in a type of housing
during the 30 days. For example, if a client lived on the streets for the entire 30
days, type of housing would be “homeless” and duration would be 30 days.

Type of Housing Duration
T1.
T2.
T3.
T4.
T5.

U1. What is the client’s highest level of school completed? (circle one)

8th grade or less 1
Some high school (9th to 11th grade) 2
High school diploma or GED 3
Some college 4
College degree 5

V1. Has the client ever been employed? (circle one)

NO [go to V1] 0
YES 1

V2. Last year of the client’s employment: ______

W1. Date of placement in Housing First program: ____/____/____

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Appendix A: Methodology
Exhibit A–6.
Monthly Data Collection Instrument

HOUSING FIRST STUDY
MONTHLY DATA COLLECTION

Client ID Number
Site
Data Collector’s Initials
Month Covered by Report
Date Information Reported

This information is to be completed by the client’s treatment coordinator or agency staff
member who knows the most about the client. To the extent possible, it should be filled
out on a monthly basis even for clients who have left the permanent supportive housing
program.

A1–5. Please tell us the client’s residential history (including institutions and temporary
situations) for the past month.

Starting at A1 with the location at the most recent interview, record the type of
housing, the location, and the duration in days for the last month. Watch for
periods of homelessness, jail or prison, hospitalizations, and brief residential
transitions. Determine if hospitalizations were for medical, psychiatric, or
detox/rehab reasons.

Location Type of Housing Duration
A1.
A2.
A3.
A4.
A5.

B1. Did the client leave the program during the month? (circle one)

NO [go to C1] 0
YES 1

B2. Why did the client leave the program? (briefly describe)

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Appendix A: Methodology
C1–9. Estimate the number of contacts with supportive services providers, and who
provided the services, during the month. A contact is any day that a client meets
with any of the listed providers. Multiple meetings in the same day with the same
provider are counted as one contact. If the client meets with multiple providers
on the same day, each provider should be counted once for that day. For each
provider, the maximum number of contacts for a given month is the number of
days in that month. If there were no contacts by a particular provider or for a
particular service, mark that cell with a “0.”

Service Housing
Staff
Other
Staff
Other
Agency
C1. Case management
C2. Life skills training (outside of case management)
C3. Substance abuse counseling or treatment
C4. Psychological treatment or mental health services
C5. Other health care services
C6. Legal assistance
C7. Employment assistance
C8. Other (specify:_____________________)
C9. Other (specify:_____________________)

D1. Did the client use alcohol this month? (circle one)

NO 0
YES 1

D2. What was the client’s level of impairment as a result of alcohol use during the
past month? (circle one)

No alcohol use 0
None 1
Moderate 2
Severe 3
Unknown 4

D3. Did the client use drugs this month? (circle one)

NO 0
YES 1

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Appendix A: Methodology
D4. What was the client’s level of impairment as a result of drug use during the past
month? (circle one)

No drug use 0
None 1
Moderate 2
Severe 3
Unknown 4

E1. Does the client have a representative payee?

NO [go to E3] 0
YES 1

E2. Who is the client’s representative payee?

Housing First Program 1
Relative (specify: ___________________) 2
Other (specify:_____________________) 3

E3. Estimate how well the client managed his/her money this month. (circle one)

Poorly 1
Moderately 2
Very well 3

E4. Estimate the client’s money management skills this month. (circle one)

Program identifies need; program purchases items for the client. 1
Client identifies need; client asks program to purchase items. 2
Client identifies need; client asks for money to purchase items. 3
Client managed own money for needs during the month. 4

F1. Is the client experiencing symptoms related to mental illness or psychiatric
problems? (circle one)

NO [go to F3] 0
YES 1

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Appendix A: Methodology
F2. What level of impairment is the client experiencing due to symptoms related to
mental illness or psychiatric problems? (circle one)

None 1
Moderate 2
Severe 3
Unknown 4

F3. How often is the client taking medication to manage symptoms related to mental
illness or psychiatric problems? (circle one)

Never 0
Sometimes 1
Always 2

F4. How independently is the client taking medication? (circle one)

Supervised by staff while they take it 1
Staff package it, but client takes it independently 2
Client packages it at agency’s office and takes it independently 3
Client obtains and takes medication independently 4

G1. Estimate the number of days that the client had contacts with the community
(outside of the agency) during the month. A contact with the community is any
transaction or interaction (e.g., shopping at the grocery or drug store, going to a
restaurant, doctor visit, meeting with welfare or SSI officer, visiting relatives,
other social activities) that takes place outside their buildings. A community
contact does not include meetings with program staff. If client has multiple
community contacts on the same day, count it as one contact day. (circle one)

Daily or almost daily (25+ days) 1
A lot (10–24 days) 2
Some (5–10 days) 3
A few (1–4 days) 4
None [go to H1] 5
Don’t know [go to H1] 6

G2. If client had community contacts, was the client accompanied by program staff or
other service providers for half or more of the community contacts? (circle one)

NO 0
YES 1

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Appendix A: Methodology
H1–9. What sources of income benefits did the client have at any point during the
month? (circle no or yes for each option)

Income or Benefit Sources NO YES
H1. Supplemental Security Income (SSI) 0 1
H2. Social Security Disability Income (SSDI) 0 1
H3. Welfare (TANF, GA, State or City program) 0 1
H4. Veteran’s income benefits 0 1
H5. Employment income 0 1
H6. Subsidized health insurance (Medicaid, Medicare, Veteran’s) 0 1
H7. Unsubsidized health insurance 0 1
H8. Food Stamps 0 1
H9. Other (specify:____________________________________) 0 1

I1. What was the client’s total income during the month? $______.00

J1. Were there any housing problems for the client during the month? (circle one)

NO [end] 0
YES 1

J2. In general terms, what were the problems? (briefly describe)

131

Appendix A: Methodology
Exhibit A–7.
Focus Group Discussion Guide

Thank you for meeting with us today. My name is [name of moderator] and this is [name of note
taker] and we are here as part of a study to understand how programs like [Housing First
program] can help people who have been living on the streets for a long time find a place to live
and stay off the streets. For this study, we are also talking with the people who plan, run, and
pay for programs like this. We are also visiting two other programs to understand what they are
doing to help people in need.

We would like to learn about your experiences in “getting off the streets” and your ideas about
what programs or services are working well and what can be done better. There are no “right” or
“wrong” answers, and we will not be using your names when we report what we have learned.
We are really just interested in understanding how well programs like this work from the
perspective of people who have experiences like yours.

[Name of note taker] will be taking notes as we talk about your experiences. We also will be
tape recording the discussion, but that is only to provide backup to our notes, for example, to
clarify something that is said when we review the notes later. We will not be associating any
comments with anyone individually, so we hope you will feel free to respond candidly and
honestly.

NOTE TO FACILITATORS

Pay close attention to the many themes of interest in this study and allow the participants to raise
them before you bring them up explicitly. They include:

• Immediate placement into permanent housing;
• Availability of needed services;
• Voluntary versus mandatory nature of program services, experiences with each;
• Appropriateness of services/approach for various sub-groups of chronic homeless;
• Satisfaction with types of housing and range of housing choices offered;
• Preferences for types of services connected to housing, and how they are connected (required
or voluntary); and
• Experience with the transition from streets to permanent housing.

ACCEPTING HOUSING

I’d like to begin our discussion by asking everyone how and when you first came in off the
streets [or from a shelter] and into [Housing First program] housing?

• What made you decide to accept housing? (word on the street, another homeless person,
specific service provider…?)

132

Appendix A: Methodology
• What program or person first helped you? [We want to know what type of program this
is/was so try to get exact name/s and confirm type/s later.]

• There must have been many times before you decided to “come in” that you thought about it,
or that people asked if you wanted to “come in.” What was different about this time?

• Were you just “ready?” Did [program/person] offer you something or some service in
particular that made it okay for you to leave the streets?

• What did you know about this program/person before you came in? How did you know this?

• Were the program and the help you received what you expected? Any “surprises?”

• Did you get everything you needed when you first came in? Was there anything that you
didn’t need/want but had to do?

• Did you have a choice about where you would live? If so, what were your choices and what
was important to you in deciding among your choices?

• How did [Housing First program] staff build trust with you in a way that helped you get
services or stay in your housing?
• What do you like about the housing you have here? What do you not like about it?

• Overall, would you say you are very satisfied, somewhat satisfied, or not satisfied with the
housing you obtained through this program?

• Was there anything that should have been done differently or better?

• Do you have someone who serves as representative payee for you—that is, receiving your 
money every month and paying your rent and other bills, and then giving you what is left
over? If so, what do you think of this arrangement? Is this required by [Housing First
program]?

• How well would this program work for other people you know who are still living on the
streets? What do they need? How could they be helped off the streets and into housing?

STAYING OFF THE STREETS

The last topic I’d like to cover with you is what it takes to keep people who have lived on the
streets for a long time from ever going back. What types of services and supports are important
to helping people stay housed for a long time (forever)? What do you need, now that you have
been off the streets for a while? What will you need in the future? What have your experiences
been, both good and bad?

133

Appendix A: Methodology
• What do you know about other housing programs in this community? How do you know
about them (personal or friends’ experiences, word on the street?) Do they work? All of
them, or only some? If only some, which ones and why those? How good are they? Do they
provide you with everything you need (or help you get what you need from other
programs/places)? How do the other programs compare to this one in terms of housing?
Supportive services? Rules? Respect for their clients?

• What are the most important things that will help you stay off the streets? Is there anything
offered by permanent housing programs that you don’t really need?

• In thinking about how this program can help formerly homeless people stay housed forever,
is there anything that the program should be doing differently or better?

• What do you think people who are living on the street right now need in order to leave the
streets and come to programs such as this one? Would this program work for all of them, or
just some types of people who are now living on the streets?

Are there any other experiences or ideas you would like to share with us before we end our
meeting? Does anyone have any questions for us?

Thank you all so much for your time and help. When we are finished visiting all the places we
are studying, we will write a report with our findings. We hope that other communities will read
this report and learn about what they can do to help other people like you. What you have shared
with us today will help these communities as they develop programs like this. Thanks again.

Distribute payments in envelopes and have respondents sign receipts for project accounting.

134

135

APPENDIX B: CANVASS TABLES

The following tables display the findings from the nationwide canvass of Housing First programs
conducted between December 2003 and January 2004. See table B–1 for characteristics of
programs that the study team determined met the criteria for a Housing First model. See table
B–2 for characteristics of programs that the study team determined met some, but not all, criteria
for a Housing First model.
96

96
Note that all information in the matrix may not be available for all programs for one of two reasons: due to the
short timeframe of the study, some programs were unable to participate in a discussion of all aspects of their
Housing First approach; and some programs were not eligible for this study so the study team did not discuss all
aspects of the program’s approach.

Table B–1. Housing First Programs

Populations Served
Provider
Year First
Client
Placed
Program Scale
Diagnoses
Living on
Streets
Identification of
Clients
Immediacy of Placement into
Permanent Housing
Treatment
Requirements
Approach to
Services
Pathways to
Housing,
New York City,
NY
1992 • 465 total enrollment
• 3 placements per month
• 6% turnover during first year
of placement
90% dual
diagnosis
50%
(50%
institutional
discharges)
Outreach teams from
community agencies,
hospitals, prison
Clients move immediately into a
scattered-site apartment where
Pathways to Housing holds the
lease
No treatment
requirements prior to
enrollment; clients must
agree to 2 home visits
per month
ACT team with off-
site services; low
demand approach
to substance use
Downtown
Emergency
Service Center,
Seattle, WA
May 1994 • 306 total enrollment
• 2–3 placements per month
• 6–7% turnover during first
year of placement
10%
substance
abuse only,
40% mental
illness only,
50% dual
diagnosis
30% Case managers and self-
referrals
Clients move from a transitional to
permanent housing placement in
one of three buildings; clients hold
their own leases
No treatment
requirements prior to or
after enrollment
Modified ACT team
with on-site
services; low
demand approach
to substance use
REACH, San
Diego, CA
December
2000
• 250 total enrollment (200 in
permanent housing, 50 in
transitional housing)
• 2 placements per month
• 25% turnover during first
year of placement
30% mental
illness only,
70% dual
diagnosis
80% Street outreach 20% of clients move into transitional
housing prior to permanent
placement, typically by choice;
transitional housing is in the Metro
Hotel, which may also serve as
permanent housing for individuals
who do not have Section 8
vouchers; clients hold their own
leases
No treatment
requirements prior to
program enrollment;
clients must meet with
case manager twice a
month
Modified ACT
team; low demand
response to
substance use
Sunshine
Terrace,
Columbus, OH
July 2001 • 130 total enrollment
• 16 placements per month
• 20% turnover during first
year of placement
20% mental
illness only,
30%
substance
abuse only,
40% dual
diagnosis
10% Outreach, shelters, street,
hospitals, jail, veterans’
commission
Some clients have transitional
moves prior to permanent
placement in an SRO owned by the
YMCA or other building owned by
the Columbus Metropolitan Housing
Authority; agencies that own the
buildings hold the leases
No treatment
requirements prior to or
after enrollment
Teams with
community-based
support services
on-site
The Village, Los
Angeles County
AB 2034, Long
Beach, CA
1999 • 400 total enrollment
• 8 placements per month
• 10% turnover during first
year of placement
100% mental
illness
100% Streets, jail; members
must be connected with a
case manager to enter
program
Clients may choose among a
number of housing options,
including transitional housing at
hotels or shelters; clients hold their
own lease
No treatment
requirements prior to or
after enrollment
Community-based
services that meet
clients “where they
are”
Community
Housing Network,
Columbus, OH
February
1999
• 109 total enrollment All mentally ill,
most dual
diagnosis
Not
available
Mental health agency,
homeless outreach team,
shelters
Clients move into permanent
supportive housing in buildings
owned by the agency
No treatment
requirements prior to or
after enrollment
Stages of change
model to address
substance use
136

Table B–1. Housing First Programs

Populations Served
Provider
Year First
Client
Placed
Diagnoses
Living on
Streets
Identification of
Clients
Immediacy of Placement into
Permanent Housing
Treatment
Requirements
Approach to
Services
Program Scale
Direct Access to
Housing, San
Francisco, CA
December
1998
• 393 total enrollment
• 30–40 placements per
month
• 33% turnover during first
year of placement
80% disabled
(substance
abuse, mental
health,
medical
disorders)
90% Street outreach teams,
shelters, emergency
department case
management teams,
primary care clinics,
institutional settings
Immediate access to permanent
housing in six facilities where the
program holds the lease
No treatment
requirements prior to or
after enrollment
ACT teams with on-
site services

Horizon House,
Philadelphia, PA
March 2003 • 40 total enrollment
• 5 placements per month
• No turnover during first year
in placement
100% dual
diagnosis
100% Outreach teams, database
of homeless
Client chooses among several
scattered-site apartments and
clients hold their own leases
No treatment
requirements prior to or
after enrollment
ACT team with off-
site services
Lamp
Community, Los
Angeles, CA
June 1991 • 100 total enrollment
• 3–4 placements per month
• 1% turnover during first year
in placement
20% mental
illness only,
80% dual
diagnosis
90% Street and jail outreach,
safe haven project
Client chooses to move directly into
an apartment or to stay in the
shelter first; client holds the lease
for some housing locations and
program holds the lease for others
No treatment
requirements prior to or
after enrollment
ACT team with on-
site services

137

Table B–2. Possible Housing First Programs

Populations Served
Provider
Year First
Client
Placed
Program Scale
Diagnoses
Living on
Streets
Identification of
Clients
Immediacy of Placement into
Permanent Housing
Treatment
Requirements
Approach to
Services
Anishinabe
Wakiagun,
Minneapolis, MN
Not available • 40 total enrollment

33% dual
diagnosis,
67%
substance
abuse only
90% Local detox center, walk-
ins
No transitional moves No treatment
requirements prior to or
after enrollment
ACT team with on-
site services
Avalon Housing,
Ann Arbor, MI
1992 • 116 total enrollment
• 1 placement per month
• 2% turnover during first year
in placement
25% no
diagnosis,
30% dual
diagnosis,
45% mental
illness only
<10% Word of mouth, openings
published in the paper,
referrals from area service
providers
Clients move directly into
permanent housing owned by the
program; clients hold their own
leases
No treatment
requirements prior to or
after enrollment, unless
housing is in jeopardy
On-site
multidisciplinary
treatment team
Canon Kip
Community
House, San
Francisco, CA
1994 • 103 total enrollment
• 1 placement per month
• <10% turnover during first
year in placement
75–80% dual
diagnosis
90% Referral by social services
providers
Clients move from a waiting list into
permanent housing provided
through several city agencies;
clients hold their own leases
No treatment
requirements prior to or
after enrollment
ACT team with on-
site services
Chicago Housing
for Health
Partnership,
Chicago, IL
2003 • 24 total enrollment 100%
diagnosed
with one of 10
identified
chronic
illnesses; 80%
have a history
of chronic
substance
abuse and
20%–30%
have chronic
mental illness
Not
available
Referrals from three local
hospitals
Clients must stay at an interim
health facility for 1–12 weeks to
stabilize following hospitalization
and to determine the appropriate
type of permanent housing,
including scattered-site and group
living
No treatment
requirements prior to
enrollment; clients must
work with a case
manager
Off-site services
Common Ground,
New York City, NY
Early 1993 • 270–350 total enrollment
• <1 placement per month
• <1% turnover during first
year in placement
60% dual
diagnosis
Not
available
Referrals from Human
Resources Administration,
Housing Resource Center,
and self-referral
Clients enter permanent housing in
one of two buildings following a stay
in shelter or transitional facility;
clients hold their own leases
No treatment
requirements prior to or
after enrollment
ACT team with on-
site services

138

Table B–2. Possible Housing First Programs

Populations Served
Provider
Year First
Client
Placed
Diagnoses
Living on
Streets
Identification of
Clients
Immediacy of Placement into
Permanent Housing
Treatment
Requirements
Approach to
Services
Program Scale
Commons at
Grant, Columbus,
OH
June 2003 • 100 total enrollment
• No new placements
50% low-
income wage
earners, 50%
homeless with
one verifiable
disability
(mental or
physical)
Not
available
Not available Not available No treatment
requirements prior to or
after enrollment
Not available
Contra Costa
County Public
Health Homeless
Program , Contra
Costa County, CA
1997 • 160 total enrollment
• 1 placement per month
• <10% turnover during first
year of placement
60% dual
diagnosis
70% Psychiatric facilities,
hospitals, detox, jail,
transitional housing, multi-
service centers, streets
Clients have to wait 90–120 days to
secure a housing voucher; clients
hold their own leases
No treatment
requirements prior to or
after enrollment
Modified ACT team
with a low demand
approach
Dwelling Place,
Grand Rapids, MI
May 2002 for
Ferguson;
1987 for DPI
• 189 total enrollment
• 25% turnover during first
year in placement
Ferguson—
20% mental
illness only,
20% physical
disability, 60%
dual
diagnosis;
Dwelling Place
Inn—25%
mental illness
only; 25%
physical
disability, 50%
dual diagnosis
20% Social service agencies
and self-referral
Clients immediately enter one of the
program’s facilities where they hold
their own leases
No treatment
requirements prior to or
after enrollment
ACT team with on-
site services
Housing
Initiatives,
Madison, WI
January
1995
• 64 total enrollment
• 1.5 placements per month
• <1% turnover during first
year in placement
33% dual
diagnosis,
67% mental
illness only
1% Referrals by shelters and
transitional housing staff,
walk-ins
Clients move immediately into a
program facility or scattered-site
housing; clients hold their own
leases and program writes a letter
to landlords to guarantee rent
No treatment
requirements prior to
enrollment; clients must
work with a case
manager
ACT team with off-
site services
Phoenix
Programs, Inc.,
Concord, CA
Not available • 20 total enrollment Mental illness Not
available
Outreach, daytime
homeless service centers
Clients move directly into shared
permanent housing owned by the
program; the program holds a
master lease
Clients are encouraged
to be clean and sober
and medication
compliant
Assertive case
management

139

140
Table B–2. Possible Housing First Programs

Populations Served
Provider
Year First
Client
Placed
ale
Diagnoses
Living on
Streets
Identification of
Clients
Immediacy of Placement into
Permanent Housing
Treatment
Requirements
Approach to
Services
Program Sc
Project HOME,
Philadelphia, PA
1992 • 98 total enrollment
• 5 placements per month
• 60% turnover during first
year in placement
100% mental
illness, 32-
53% of which
have a dual
diagnosis
43% Homeless outreach
programs, Department of
Mental Health
Clients experience transitional
moves through the safe haven;
clients do not hold their own leases
Substance abuse
treatment required at
one of the housing
facilities
Case managers
and psychiatrists
Sacramento
County, California
AB 2034,
Sacramento
County, CA
1999 • 100 total enrollment
• <1 placement per month
32% mental
illness only,
68% dual
diagnosis
Not
available
Referrals by the larger
homeless system of care,
the mental health
homeless system of care,
jails, and mental health
crisis units
Clients typically have a transitional
stay at a room and board house or
transitional housing unit
No treatment
requirements prior to or
after enrollment
Modified ACT team
with off-site
services
Tellurian,
Madison, WI
January
1988
• 12 total enrollment
• 2–3% turnover during first
year in placement
40% mental
illness only,
60% dual
diagnosis
15–20% Self-referrals from street,
police, cab drivers,
shelters, and transitional
housing
Not available Not available ACT team with on-
site services
The Wintonia,
Seattle, WA
1994 • 89 total enrollment
• 2 placements per month
• 3% turnover during first year
in placement
10% either
substance
abuse or
mental illness
only, 90% dual
diagnosis
65% Clients are referred by
other social service
agencies and placed on a
waiting list
Clients move directly into SRO
housing, masterleased by the
program
No treatment
requirements prior to or
after enrollment
On- and off-site
services

Appendix C: Downtown Emergency Service Center (DESC), Seattle

APPENDIX C: DOWNTOWN EMERGENCY SERVICE CENTER (DESC),
SEATTLE, WASHINGTON

The Downtown Emergency Service Center (DESC) provides outreach, case management, and
mental health and substance abuse treatment services. DESC also operates emergency shelters, a
safe haven, and permanent supportive housing programs for homeless people with mental illness
and substance-related disorders.

DESC maintains 331 units of permanent supportive housing in four buildings that DESC either
owns or controls. Each building is staffed by 24-hour, on-site housing case management staff
who work with clinical case managers to help residents adjust successfully to the housing
environment. DESC also controls access to an additional 145 rent subsidies for use by agency
clients in scattered-site housing in the community. This housing is typically used by clients who
require lower levels of supportive services.

DESC initiated a permanent supportive housing program with a Housing First approach in May
1994. Most clients enter DESC’s permanent supportive housing through other divisions within
DESC. DESC’s outreach program—the Homeless Outreach, Stabilization, and Transition
(HOST) project—provides outreach and engages homeless people on the street and in DESC’s
shelter. Case managers from the clinical mental health services division of the agency refer
homeless people on the street and in emergency shelters to DESC’s housing programs.

BACKGROUND

For more than 20 years, DESC has specialized in serving homeless people with mental illness
who congregate in the downtown Pioneer Square area of Seattle. Initially, DESC opened an
emergency shelter to serve the mentally ill and substance abusing homeless population living on
the street. DESC thus learned how to work effectively with the homeless people who other
agencies would not serve.

To meet the needs of this treatment-resistant population more effectively, DESC has fostered
strong partnerships with city and county government. DESC became certified as a licensed
mental health provider in 1980. King County then contracted with the agency to provide
emergency shelter and case management to the chronically homeless population that increasingly
was considered a problem to the downtown business community. In 1985, through a Robert
Wood Johnson Health Care for the Homeless grant, DESC secured on-site nursing staff in
addition to mental health and drug and alcohol addiction services.

In 1994, the U.S. Department of Health and Human Services designated DESC as a
demonstration program site in its Access to Community Care and Effective Services and
Supports (ACCESS) program. One goal of the ACCESS program was to improve integration of
service systems that provide housing and services for severely mentally ill homeless people.
Following the ACCESS demonstration in 1999, King County continued funding DESC to find
and engage the homeless mentally ill population through its HOST project. Also in 1999, DESC
141

Appendix C: Downtown Emergency Service Center (DESC), Seattle

became licensed in chemical dependency treatment, allowing the agency to integrate mental
health and addiction treatment for homeless people who are dually diagnosed with substance-
related disorders.

DESC staff found that they could effectively help homeless people move out of emergency
shelters. Staff grew frustrated, however, that after leaving the shelters, they often returned to
homelessness. Hindered by the lack of an effective service system, DESC decided to work with
the mental health and addiction treatment systems in Seattle. Together, they developed long-
term housing for homeless people with psychiatric disabilities and substance-related disorders.

DESC’s overall housing program has not been evaluated. However, a study was conducted
during 2002 on the Lyon Building, where 64 DESC clients live. The Lyon Building serves low-
income people with HIV/AIDS and at least one other qualifying disability—typically mental
illness or substance abuse, and frequently both. This study found that more than 90 percent of
the Lyon Building’s residents had been homeless at some time. Forty-six percent had been
homeless for at least one-quarter of their adult lives. Despite the high past incidence of
homelessness among these residents, 65 percent had lived there for more than three years. While
living at the Lyon Building, residents reported increased access to services, better control over
their lives, and improved overall quality of life. Fewer than 20 percent planned to leave.
Physical health status deteriorated significantly during the study period, which was expected
given the frail health of the residents at baseline. Service engagement and substance abuse
impairment improved slightly (Northwest Resource Associates, 2002).

POPULATION SERVED

The agency provides emergency shelter, survival services, clinical programs, and supportive
housing to more than 5,000 homeless people annually.
97
Staff estimate that DESC has at least
some contact with most of the approximately 2,500 chronically homeless people in Seattle,
because the agency’s programs focus on people who are the most disabled and longest-term
homeless.

DESC’s Housing First program started in May 1994 and places approximately two or three
clients per month. DESC staff estimate that about 30 percent of their clients come directly from
the streets, with the remainder coming from emergency shelters. DESC operates a low-demand
emergency shelter that prioritizes mentally ill and addicted individuals without sobriety
requirements. This results in a fairly high proportion of Housing First clients using shelters at
least some of the time. DESC’s goal for its Housing First program is to serve the most
vulnerable homeless people. Annual Progress Reports (APRs) submitted to the U.S. Department
of Housing and Urban Development (HUD) in 2003 indicate that nearly all the new clients
entering DESC’s housing had a mental illness and the majority had a substance-related disorder.

97
For more information, see: http://www.desc.org/program.html.
142

Appendix C: Downtown Emergency Service Center (DESC), Seattle

The research on which this report is based tracked 25 of the agency’s clients. Of those tracked,
21 met HUD’s criteria for being “chronically homeless.”
98

THE TRANSITION FROM HOMELESSNESS TO PERMANENT SUPPORTIVE
HOUSING

The key feature of the DESC Housing First approach is that homeless people do not have to
agree to sobriety or treatment as a condition of entering or retaining housing. According to
DESC staff, a few other Seattle area programs serve people who are chronically homeless and
have limited service requirements for clients. These programs do not require sobriety, but do
require that clients be connected to case management. With its focus on providing permanent
supportive housing to the most vulnerable and least engaged among the chronically homeless
population, DESC staff believe their program approach allocates scarce housing resources to
those who need them most, regardless of how connected the clients are to case management or
other services. In the words of a senior staff member at DESC, the most important lesson
learned from their experience is that “people can be housed the way they are.”

DESC staff maintain that understanding the engagement, enrollment, and placement dynamic is
an essential component of the Housing First approach:

The key to the approach is going at the client’s own pace. It’s about engagement, not
outreach. It may start with going where people tend to go, but engagement continues
throughout the process from streets, shelter, housing, and back. We work with the people
who need it most. People who are more assertive in their needs are typically those who
need it least; the onus is on us to make most resistant people want our services.
(Interview with Dan Malone, Housing Program Director, April 2004)

Outreach
DESC’s HOST project conducts outreach. Outreach workers engage homeless persons with
mental illness on the street, in emergency shelters, and in drop-in centers. HOST outreach
workers look for the most impaired, most vulnerable people on the street. A staff member
reported that, “HOST is looking for people who are not looking for us.” Outreach staff begin by
meeting people where they spend time, starting with small talk, then offering tangible assistance
(i.e., a sleeping bag, coffee, clothing). Once the homeless person accepts tangible items, the
outreach worker may offer help with benefits, medical care, or other needs. HOST outreach
workers carry caseloads of approximately 15 people.

Housing Placement
A HOST case manager may offer a client housing at any point during the engagement process.
If the client seems ambivalent or unwilling, the HOST staff work with the client to learn more
about the housing and become comfortable with the idea of trying the housing arrangement.
Because vacancies are rare, staff maintain a waiting list of qualified homeless persons who are

98
The present study included DESC staff tracking 25 clients over a 12-month period. The staff used standard
baseline and monthly data collection instruments to gather data about the study participants through administrative
information systems. See Appendix A for more information about the study methodology.
143

Appendix C: Downtown Emergency Service Center (DESC), Seattle

interested in entering housing. Staff explain that how long or how well they know an applicant
has no bearing on the applicant’s place on the waiting list. Instead, the lists are prioritized by
level of need, with the most vulnerable and dysfunctional candidates receiving the highest
priority for housing. About every two months, housing staff and HOST outreach workers meet
to review where housing is available and who is at the top of the list to enter housing. In the
meantime, HOST staff maintain as much contact as possible with candidates where they are
living—on the streets or in the shelter.

Staff admit that setting priorities has been somewhat subjective in the past. To lessen
subjectivity, DESC is in the process of implementing a standardized assessment form to be used
with all clients. The form will assess functioning and vulnerability, yielding a score that will be
used to rank housing applicants. Case managers will be able to see how their clients’ scores
compare to others on the waiting list.

When a housing opening occurs, DESC contacts the top applicant on the waiting list. Because
vacancies are rare and are limited to the four buildings DESC owns or controls, client choice in
housing is limited. Staff and residents confirmed that clients can choose between accepting a
unit or remaining homeless, but do not really have a choice among housing units. Community
integration is also limited. Each of DESC’s buildings serves only (formerly) homeless people,
the large majority of whom have a mental illness.

The nine clients who participated in focus groups during the site visit made generally favorable
comments about DESC housing.
99
Clients liked tangible aspects of their housing, including the
privacy offered by individual apartments and amenities such as laundry facilities, television, and
meals. They also liked less tangible features such as feeling “at home,” being independent, and
having a social life. One focus group participant, a former state hospital resident, made most of
the negative comments. He did not like living with a large number of people with mental illness,
“It’s still a nuthouse,” he complained.

Residents in the focus groups verified, that applicants for housing do not have to agree to
participate in supportive services to receive housing. Representative payees are rarely mandated
by DESC, but approximately 30–40 percent of clients have them. DESC may initiate a
representative payee arrangement if the resident has a history of nonpayment of rent. Staff
estimate that this occurs in fewer than 10 percent of cases. More commonly, the Social Security
Administration or the state of Washington requires that clients have a representative payee. In
such a case, DESC often serves as representative payee for its clinical program clients. Eight of
the clients who participated in the focus groups said they had a representative payee, and two
said having a representative payee was a condition of getting their housing. One said he resented
having a payee, but none of the others objected publicly to the arrangement.

In most cases, staff request that the client participate in an interview prior to admission, but this
is not mandatory if the client is unwilling to participate. The Seattle Housing Authority (SHA)
administers the Section 8 subsidies that are attached to some of the units in each of the four
buildings operated by DESC. For the units that receive Section 8 subsidies, SHA must approve

99
The study team conducted two focus groups at DESC on May 23 and 24, 2005. A total of eight clients
participated in these groups.
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Appendix C: Downtown Emergency Service Center (DESC), Seattle

new residents. Under certain circumstances, applicants with histories of sex offenses, arson,
drug convictions, and evictions from SHA housing may be rejected, but DESC is permitted to
apply their own criminal background criteria. More often than not, applicants with problematic
criminal backgrounds can be housed, as long as it is not prohibited by the Federal regulations
governing the Section 8 program.

HOUSING FOR DESC CLIENTS

DESC offers supportive housing at four locations, each serving slightly different populations.
The common feature among the four locations is that homeless people do not have to agree to
services as a condition of entering or retaining housing. Each location is described below.

Kerner-Scott House
Kerner-Scott House is a 25-unit safe haven for people with serious mental illness referred
through DESC’s HOST project. Located in the south Lake Union area, Kerner-Scott House is in
a somewhat tucked away location. But it is near busy downtown streets and just off an
expressway. The four-story building also houses offices for on-site staff, a 25-bed overnight
shelter for women who are homeless and mentally ill, and a 15-unit “clean and sober” program.

Each safe haven resident has a studio apartment. Each apartment has a small kitchen, living and
sleeping area, and bathroom. The street level includes a common living and dining area and staff
offices. Kerner-Scott’s on-site staff members include two clinical service coordinators and one
or two residential counselors during the day. Staffing at night includes two or three overnight
staff, and three swing shift staff. Clinical service coordinators provide clinical supervision of the
residential counselors. They also are primarily responsible for administrative functions.

Eligibility criteria for Kerner-Scott House include homelessness, serious mental illness, and lack
of other housing options. This safe haven serves the most impaired and least engaged of DESC’s
clients. There are no formal limits on length of stay, but residents are encouraged to move to one
of DESC’s other permanent supportive housing buildings within 24 months. DESC’s other three
buildings are located within a few blocks of each other on Third Avenue in the Pioneer Square
area of downtown Seattle. Five of the clients tracked for this study lived at Kerner-Scott when
they entered the study.

The Lyon Building
The Lyon Building has 64 units of permanent supportive housing for persons with
HIV/AIDS and other disabilities. The building opened in 1997 after being renovated by
another local nonprofit housing and services provider, AIDS Housing of Washington. DESC
operates the building and provides services, but does not own the building. The first floor
has a common area and staff offices.

Referrals to the Lyon Building come from DESC outreach, as well as Seattle area AIDS
service providers. To live at the Lyon Building, applicants must be homeless, low-income,
and require supportive services. They must have two of three qualifying disabilities:
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Appendix C: Downtown Emergency Service Center (DESC), Seattle

HIV/AIDS, mental illness, or chronic substance abuse history. Applicants are assigned to a
priority category for admission—applicants disabled by both HIV/AIDS and mental illness
have top priority. Applicants who do not have HIV may be admitted, but this is only a small
percentage of residents. Staff estimate that three-quarters of the building’s residents have a
mental illness, but not necessarily a “severe and persistent” mental illness. A slightly larger
proportion—roughly
80 percent—have substance abuse histories. Many residents have all three disabilities,
according to staff. Most also have criminal histories related to their substance abuse.

There are no time limits on stays at the Lyon Building. Compared to DESC’s other
permanent supportive housing locations, a smaller proportion of Lyon Building residents
come from the streets or emergency shelters. According to staff, the HIV/AIDS services
system has a more extensive stock of transitional housing relative to the need, so some
residents come from such transitional settings.

The Lyon Building has four clinical service coordinators for its 64 residents, including one
who is a chemical dependency specialist. Residential counselors provide additional on-site
support. Four of the clients tracked for this research lived at the Lyon Building when they
entered the study.

The Morrison Hotel
The Morrison Hotel was originally owned and operated by the SHA. The five-story building
had 205 single room occupancy (SRO) units. Beginning in 1979, DESC leased additional
space in the building for a 203-bed emergency shelter. Historically, the SRO units were
mostly occupied; however, many residents were either frail elderly or had mental illnesses.
Many had unmet service needs, criminal histories, behavioral issues, and other challenges.
In 2001, a group of local stakeholders put pressure on SHA to address problems created by
residents of the building, recommending that SHA sell it to DESC. SHA agreed. DESC
purchased the building and assigned a project manager, program assistant, five clinical
service coordinators, and nine residential counselors to the building. The building serves
homeless individuals, disabled by mental illness or substance abuse, and some formerly
homeless residents coming from Kerner-Scott House. Fifteen of the clients tracked for this
study lived at the Morrison.

In addition to permanent supportive housing, the Morrison Hotel continues to house an
emergency shelter for 203 men and women, including a 20-bed Crisis Respite Program.
Shelter guests must either be women or people with disabilities. People are defined as
disabled if they have a mental health problem or physical disability. During the day, the
shelter space operates as a drop-in center staffed to provide medical care, mental health
counseling, and chemical dependency treatment. Staff provide information and referrals.
Visitors may obtain clothing and use hygiene facilities, as well as mail and phone services.
These contacts allow homeless people to learn about DESC’s permanent housing programs.
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Appendix C: Downtown Emergency Service Center (DESC), Seattle

The Union Hotel
The Union Hotel, a renovated SRO hotel building, opened in 1994. It houses 52 mentally ill
and formerly homeless residents in permanent supportive housing. Each resident has an
independent apartment with a small kitchen area and bathroom. Some units do not have
showers, so there are common showers in the hall. Turnover is extremely low (only four
units in 2003). About one-half of the residents are former Kerner-Scott House residents who
are ready for somewhat more independent living. Applicants must be homeless and disabled.
Ninety-five percent have a primary diagnosis of mental illness, and roughly one-third have a
history of chronic substance abuse. Staffing at the Union Hotel is somewhat less intensive
than at the Morrison Hotel, with one residential counselor on duty at all times and one
clinical service coordinator. There are no limits on length of stay at the Union Hotel. One of
the clients tracked for this study lived at the Union Hotel.

Housing Agreements
When a client enters DESC housing, he or she signs a lease agreement and a clinical service
coordinator is assigned. Residents of Kerner-Scott House sign a month-to-month agreement,
while residents of the other buildings sign one-year agreements. Lease documents include
provisions that the resident may be evicted for criminal activity, drug use, or violence in or near
the property. Staff explain, however, that residents receive many warnings before the agency
elects to move the resident to another DESC building or pursue an eviction. In addition, leases
include a policy on visitors. Staff may limit or prohibit visitors on a case-by-case basis. One
focus group participant was satisfied with his apartment, but objected to the restrictions on
visitors. The restrictions were a condition of his own lease, due to his history of drug activity.
Despite his objections, he conceded that, “If you live in your own place, you can make the rules.
I’m living in someone else’s place, so I have to live by their rules.”

FUNDING SOURCES FOR HOUSING AND SERVICES

All four housing locations are funded by HUD programs. Kerner-Scott House receives funding
under the safe havens component of the Supportive Housing Program (SHP). At the Lyon
Building, 40 units are subsidized through SHP and the remaining 24 units are funded by Section
8 Moderate Rehabilitation SRO Program. The Morrison Hotel and Union Hotel are both funded
by the Section 8 Moderate Rehabilitation SRO Program, as well. All four buildings used the
Low Income Housing Tax Credit Program for capital development.

DESC funds services in its buildings through a variety of sources, including:

• HUD’s SHP, tenant rents (the portion not needed for building operations);
• HUD Service Coordinator Program;
• Housing Opportunities for Persons with AIDS grants through local government;
• Other local government funds; and
• Private fundraising.

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Appendix C: Downtown Emergency Service Center (DESC), Seattle

DESC’s other mental health and substance abuse treatment services are funded primarily through
Medicaid, which is administered by the county government. DESC also uses other Federal and
state funds (including Projects for Assistance in Transition from Homelessness) for these
services. But staff report that Medicaid is the predominant funding source. Clinical staff
members associated with DESC’s licensed treatment programs provide services that are
Medicaid-billable. The housing-based clinical service coordinators are not considered part of the
licensed programs and therefore are not generally Medicaid-billable.
HOUSING AND SERVICES AFTER ENROLLMENT

HOST staff continue to followup with residents as they settle into their housing, typically for
several months. Residents are not pressured to complete forms or undergo assessments in the
first few weeks of residency. Typically, staff administer an assessment scale a month or two
after the client’s arrival. As the client becomes settled in housing, a DESC community case
manager takes over from the HOST staff as the primary case manager.

Service Model
DESC emphasizes providing services where their residents live. The agency does not, however,
use the multidisciplinary teams that characterize the Assertive Community Treatment (ACT)
team model. The DESC approach offers outreach, psychiatric and substance abuse treatment
services, housing and life skills support, and case management. These services are handled by
staff from different divisions of DESC. Both “human-to-human” and electronic systems—
including a sophisticated on-line management information system (described below)—support
coordination among staff providing different services to DESC’s clients. Some clients receive
case management or other services from outside organizations, but DESC typically takes the lead
for residents of its buildings.

As noted previously, all of DESC’s permanent housing locations have 24-hour on-site
housing case management staff. These property-based staff members work with the
agency’s community case managers, who provide clinical services and supervision. The
community case managers come from DESC’s licensed mental health or substance abuse
treatment divisions. DESC tries to integrate property management and supportive services
seamlessly. Staff members believe this approach results in a better relationship between
clients and workers, which fosters long-term success. The housing staff members, who
usually have a social work background, are trained to handle both property management
issues and supportive services. DESC management believes that it is easier to teach
property management skills to a social worker than vice versa.

The average caseload for each housing case manager is 34 people. The program model
provides “an easy entrance” and allows people to learn from their mistakes. Case
managers are assigned to the clients and work with them to ensure housing success.
Residents are still held accountable for their actions (often by fellow residents). DESC
staff members work with the resident to address any problems. The intensive staffing in
the buildings means that staff have frequent contact with most clients. This is reflected in
the service contact data collected for this study. DESC service contact rates were far
higher than in the other two programs where clients live in more dispersed housing.
DESC staff acknowledge, however, that housing so many people with severe mental
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Appendix C: Downtown Emergency Service Center (DESC), Seattle

health issues in close proximity may create more problems than would occur if clients
were dispersed. The important factor in DESC’s model, staff add, is that on-site staff are
available to followup if problems arise.

Service Participation
DESC does not require that clients accept the services offered to be housed. The clinical service
coordinators in each building take the lead in developing residential service plans for their
caseloads. These plans are similar to individual service plans that would be developed by an
outside case manager, but focus on issues that are most likely to affect the resident’s success in
housing. The clinical service coordinator consults with the community case manager and the
resident if the resident is willing and able to participate. In cases when the client cannot or will
not participate in the planning, the residential service plan generally focuses on engagement
efforts. While DESC requires that program staff visit residents, the residents themselves are not
required to agree to case manager visits.

The residential service plan identifies problems and issues. The plan then identifies objectives to
be accomplished and methods for accomplishing the objectives. It also delineates the tasks that
the housing staff, the community case manager, and the resident will undertake. The on-site
support from the housing staff is intended to augment, not duplicate or replace, the community
case manager’s efforts. Clinical service coordinators are expected to contact community case
managers as often as needed, minimally on a weekly basis. Clinical service coordinators update
resident service plans quarterly in consultation with the community case manager and the
resident.

While residents are not required to participate in mental health treatment or take medications,
staff members encourage residents to do so. A psychiatrist visits each building approximately
once every two weeks. The community case managers can also make referrals to the
psychiatrists or chemical dependency specialists in the agency’s licensed treatment divisions. If
a resident’s behavior poses a risk to self or others, staff may recommend commitment. In those
cases when continued danger to others is present, staff may require medication compliance for a
specified period (usually 90 days) following the resident’s release from the hospital. Although
drug and alcohol use are not grounds for eviction, staff make it clear to residents that the results
of their drug or alcohol use may threaten their housing.

Unit inspections are required and are conducted weekly at Kerner-Scott House and monthly at
the other buildings. Staff look for unacceptable conditions, such as fire hazards (loose papers or
trash covering surfaces, excessive clutter making it hard to move around the room), and rotting
food, heavy dirt, and damage. Staff work closely with residents to keep their apartments
reasonably clean. As necessary, staff will help residents clean their rooms or arrange for a
cleaning service to clean the room at the resident’s expense.

Focus group participants confirmed that participation in services was not a condition of
their staying in housing. One client described his case manager’s approach: “They listen,
and then they watch you to see if you do what you said.” Another commented on
participating in Alcoholics Anonymous or Narcotics Anonymous meetings, noting, “They
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Appendix C: Downtown Emergency Service Center (DESC), Seattle

encourage you, but there’s no pressure.” Another, a long-time alcoholic, unapologetically
asserted, “I’ve been drinking all my life… and I’m not going to quit.”

Housing Tenure
With the exception of Kerner-Scott House, housing tenure is assumed to be permanent. As noted
earlier, residents at Kerner-Scott House are encouraged to move on to other housing within 24
months although this guideline is not strictly enforced. The project manager at Kerner-Scott
House said that getting residents to work with staff during their stay is the safe haven’s “central
contribution.” Staff members’ roles are “to be in people’s lives, to set limits, to express concern
and hope, and to inspect their rooms once a week.” These interventions are intended to prepare
residents for their next living situation. Case managers usually start talking to residents about
leaving Kerner-Scott House once they have completed one year of residency. Most move on to
one of the other three DESC buildings.

Program data confirm that most DESC residents stay in their housing. According to 2005 DESC
data, more than 90 percent of residents in the agency’s permanent supportive housing projects
remained housed for two years. On average, Kerner-Scott House residents stay 1.14 years.
Ninety-two percent of them achieve two years of housing success at Kerner-Scott House and the
permanent housing they move on to from there.

DESC can hold units for residents who leave any of the buildings for inpatient treatment. Units
may also be held for residents who go to jail, the streets, or a shelter if staff expect the client may
return. Typically, DESC reserves a unit for up to 90 days. Residents absent for longer periods
may also return, although the resident may not be able to return to the same unit they lived in
before.

Among 73 clients who left DESC housing in a recent twelve-month period, 44 percent moved to
other long-term housing. This group includes people who moved to other permanent housing
(26 percent), skilled nursing (11 percent), or moved in permanently with family or friends
(7 percent). Some 11 percent of all departures were due to death. Approximately 14 percent
were known to have returned to homelessness and another 15 percent left for unknown
destinations that may include homelessness. Long-term incarcerations accounted for 9 percent
of departures and long-term mental health or substance abuse treatment for 7 percent.

Service Coordination and Monitoring
DESC staff communicate about clients and coordinate services by several means. Within
buildings, shift change meetings are used to discuss any issues that came up on the
previous shift. Clinical service coordinators and community case managers communicate
by telephone, as well as face-to-face contacts when the community case manager visits
residents in the buildings. More intensive “care conferences” may occur when the staff
determine that new interventions are needed because the resident is not doing well.

Besides these conventional, person-to-person forms of communication, DESC has
developed an in-house information system, known as the Client Housing and Services
Entry and Reporting System (CHASERS). The system has detailed information on
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Appendix C: Downtown Emergency Service Center (DESC), Seattle

virtually everyone with whom DESC staff have contact, beginning with homeless people
in the early stages of engagement. HOST outreach workers may enter information about
these people under a pseudonym or nickname.

Housing and clinical staff enter information on all encounters with clients. The system
automatically notifies the clinical service coordinator and the community case manager by
e-mail when new information has been entered on one of their clients. Most client files
include a photograph of the client, address information, demographic data, any restrictions
on their access to services and rent owed. The file also contains a comprehensive log of
service contacts. Medication monitoring is not included in the system due to regulations
that require paper files. CHASERS is controlled so that only appropriate staff have access
to clinical or personal information.

Mechanisms are also in place to track clients who leave DESC housing. According to
staff, DESC is able to track about 90 percent of those who leave their programs for six
months after departure, primarily because most of them continue to receive services
through DESC’s shelter and clinical programs. In addition, King County’s mental health
division maintains a database of all clients enrolled in the publicly funded mental health
system. This system helps notify mental health providers when a client receives services
in another part of the system. The system sends automatic notifications to relevant
providers, including DESC, if a client is jailed or admitted for services.

ESSENTIAL COMPLEMENTS OF THE DESC PROGRAM

Staff at DESC offered a variety of important elements they say are needed for a successful
Housing First program. Elements of the service approach they use with their homeless,
chronically mentally ill clients include:

• Flexibility in recognizing client problems and not insisting that the problems be fixed;
• Creativity in responding to behavioral problems beyond assessing penalties;
• Genuine positive regard for clients; and
• Assertive engagement efforts by staff while being cognizant of the pace at which clients can
take the services being offered.

In addition to these elements, the key elements that seem to make DESC’s program effective are:

• Control of a Significant Stock of Permanent Supportive Housing Units—DESC owns or
controls more than 300 units of housing and more are being developed. This allows the
organization to serve a large population of people who have traditionally been extremely
difficult to house. Unfortunately, the need (an estimated 2,500 chronically homeless people)
still surpasses even this substantial supply.

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Appendix C: Downtown Emergency Service Center (DESC), Seattle

• On-Site Support for Residents—While housing this population together in larger buildings
is challenging, the presence of staff trained in both property management and clinical
interventions helps make it work. DESC does have scattered-site housing subsidized through
the Shelter Plus Care and Section 8 programs, but these units are reserved for clients who are
more “stable” than those served in the buildings described above. DESC staff believe there
are advantages to scattered-site housing, but do not believe they could widely “sell” the
Housing First approach to private landlords in Seattle’s high-cost, low-vacancy rental
market. To sell the approach would require substantially larger investments of rental
subsidies, coupled with adequate resources for intensive in vivo support for clients. One
DESC staff member explained that candidates for scattered-site housing are selected based
on “the likelihood the person will make good choices in housing.” Residents of Section 8
and Shelter Plus Care housing have much more freedom than in DESC buildings. DESC
staff also say that residents who are likely to isolate themselves are better off in DESC
buildings where staff can interact with them more easily.

• Access to a Wide Range of Clinical Mental Health, Physical Health, and Addiction
Services within DESC—DESC’s expertise in clinical services allows it to respond to the
complex needs of chronically homeless people.

• Administrative Systems that Support Service Coordination within the Agency—At the
time of the site visit in 2005, DESC was still adding new features to its management
information system known as CHASERS, but it already appeared to provide an extremely
important communication link among the outreach, clinical services, and housing divisions
of DESC.

DESC staff explained that only a few other Seattle area providers offer a Housing First approach
to homeless people who are mentally ill. A similarly small number of providers place a priority
on serving people who are chronically homeless. According to DESC’s executive director, many
agencies and organizations in the Continuum of Care would prefer to focus on services for
families, youth, and other subpopulations.

This trend seems to be reflected in DESC’s experience with the 2005 McKinney-Vento funding
competition. DESC was successful in getting funding for permanent housing for people who are
chronically homeless in the 2003 and 2004 McKinney-Vento grant cycles. But the agency’s
proposed 2005 project was not prioritized and is unlikely to be funded. Despite this setback,
DESC leadership continues to promote the Housing First approach. Several new projects are in
the planning or early implementation stages, including a 75-bed facility for chronic inebriates
and a second 75-bed facility with services funded by Medicaid.

Despite the concerns noted above about using a scattered-site approach for less stable clients,
DESC is implementing a 60-unit expansion of its scattered-site program using a new SHP grant
and an enhancement of service resources using private funds. The agency is also considering
launching a capital campaign to provide working capital for new projects. DESC leadership
expects these strategies will expand choice and opportunities for DESC’s clients. This will allow
DESC to respond to the needs of homeless people who are mentally ill or have substance abuse
issues.
152

APPENDIX D: PATHWAYS TO HOUSING, NEW YORK CITY, NEW
YORK

Pathways to Housing was founded on the belief that housing is a basic right. It offers homeless
people with mental illness and concurrent substance-related disorders immediate access to
housing in independent apartments scattered throughout affordable neighborhoods in New York
City. The Pathways to Housing model is based on the following tenets:

• Housing and treatment services are separate—Pathways to Housing rents apartments from
private landlords in the community;

• Assertive Community Treatment (ACT) team case management services are provided in the
community and available 24 hours a day, 7 days a week, at a 10:1 client to case manager
ratio
100
;

• Pathways to Housing does not require that clients take medication, abstain from using drugs
or alcohol, or participate in psychiatric treatment to enter or retain housing; and

• Service plans are individualized and client driven. Clients set the goals, sequence, intensity
and duration of services. The service plan is done during the first 45 days following
enrollment and renegotiated every 6 months.

BACKGROUND

Dr. Sam Tsemberis, a clinical psychologist, was providing outreach to homeless individuals with
mental illness living on the streets of New York City in 1992. His frustration with the inability
to house homeless mentally ill persons and to keep them housed led to the creation of a new
approach. Dr. Sam Tsemberis started Pathways to Housing with 50 apartments in Hell’s Kitchen
and Harlem in Manhattan through a $500,000 grant from the New York State Office of Mental
Health (OMH). Since 1992, Pathways to Housing’s contract with OMH has grown to more than
$5 million. These funds are used for clinical services and rental stipends for New York City’s
street dwelling homeless individuals with psychiatric disabilities and substance abuse problems.

Since 1992, Pathways to Housing has provided outreach to homeless persons with mental illness
who dwell on the streets of New York. Most new enrollees now, however, are referred to the
program from outside agencies, such as Westchester County Department of Social Services or
state and county hospitals. Pathways to Housing serves homeless people with co-occurring
psychiatric and substance-related disorders. The program also serves clients who exhibit violent
behavior and those who rapidly relapse due to medication noncompliance and drug use. These

100
Pathways to Housing uses a modified ACT team structure and model to provide intensive treatment services for
clients in their own apartments and at the organization’s neighborhood office sites. ACT teams are interdisciplinary,
consisting of a psychiatrist, nurse practitioner, social workers, employment specialist, wellness specialist, substance
abuse specialist, and administrative assistant.
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Appendix D: Pathways to Housing, New York City

characteristics make it particularly difficult to find supportive housing providers who will accept
them.

The Pathways to Housing approach is “consumer-driven.” According to an early mission
statement, street life “renders people incapable of managing the most basic daily routines, and
affords people little room to contemplate matters, such as treatment or recovery.” For these
reasons, Pathways to Housing provides people with an apartment of their own first, to provide
immediate relief from the hardships of living on the streets every day. This client-driven model
is based on the belief that symptoms of mental illness and drug use existed long before the
client’s homelessness. Treatment will not necessarily solve the problem of homelessness. The
offer of permanent housing solves the immediate problem by ending homelessness and working
to build trust between the program and the individual. Staff members help new tenants move,
become integrated into the community, and begin work on recovery and rehabilitation.

POPULATION SERVED

Prior to program entry, the 450 individuals served by Pathways to Housing had been living
predominately on the streets and had been involved with multiple systems, such as hospitals,
emergency rooms, and the criminal justice system. This program gives priority to those at high
risk, including the elderly, women, or people with physical disabilities. Referral sources include
several of New York City’s outreach teams, drop-in centers, hospitals, and shelters. Pathways to
Housing staff also provide some direct outreach.

Because the program is fully occupied, over the past two years the majority of new enrollees at
Pathways to Housing are referrals from outside agencies that have contracts to provide funding,
such as Westchester County Department of Social Services or state and county psychiatric
hospitals. These contracts have infused much needed new funding for services and housing into
the program but have resulted in an increase in new enrollments coming primarily from
psychiatric hospitals. Averaging three to five new enrollments per month, institutional
discharges accounted for 50 of Pathways to Housing’s new enrollments over the past two years
and psychiatric discharges constitute 42 percent (n = 11) of the current study sample.
101
Prior to
enrolling in Pathways to Housing, these clients resided in psychiatric hospitals for an average of
6.8 months—five clients stayed in psychiatric hospitals for three months or less. Despite the
large proportion of psychiatric discharges, Pathways to Housing staff reported that 92 percent
(n = 24) of the clients who participated in this study met HUD’s definition of chronically
homeless.
102

101
Pathways to Housing confirmed that the sample is representative of the larger program with the following
exception: 42 percent of the sample entered the program from psychiatric hospitals, which reflects the addition of
funding from psychiatric hospitals to provide housing to homeless patients upon discharge.
102
Pathways to Housing reported that 24 clients in the study met the joint federal definition of chronically homeless.
It should be emphasized, however, that this interpretation assumes that nine of the eleven clients who enrolled from
psychiatric hospitals met the criteria for chronic homelessness prior to a short-term psychiatric hospital stay and
were determined on a case-by-case basis most likely to become homeless upon discharge.
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Appendix D: Pathways to Housing, New York City

Several contracts have been awarded to Pathways to Housing to service long-term psychiatric
populations who cycle in and out of homelessness. These contracts include:

• Services for 30 individuals discharged from Manhattan and Rockland Psychiatric Centers;

• Support services and rent stipends for 14 individuals discharged from New York Presbyterian
Hospital’s Second Chance Program
103
; and

• Services for 60 individuals discharged from city and state psychiatric facilities, such as
Kingsboro Psychiatric Center and Kings County Hospital. The Pathways to Housing
Brooklyn team is funded primarily to serve individuals discharged from the Kingsboro and
Kings County facilities.

In addition, Pathways to Housing provides supportive housing and services under two grants
funded by HUD. Project Release provides permanent supportive housing for former inmates
referred from the Center for Alternative Sentencing and Employment Services’ (CASES)
Nathaniel project, a jail diversion program. The KEEPing Home program provides permanent
supportive housing for former inmates who continue methadone treatment upon release at the
Key Extended Entry Program (KEEP) of the Narcotics Rehabilitation Center (NRC) of Mt. Sinai
Hospital. This program is located in East Harlem. The Westchester County Department of
Social Services contracts with Pathways to Housing to serve homeless individuals with mental
illness in Westchester County, New York.

PATHWAYS TO HOUSING CLIENTS

A fundamental underpinning of the Pathways to Housing program is the separation of housing
and services. Private landlords, who are not affiliated with the program, own or manage the
housing. All housing units are independent apartments in the community. Pathways to Housing
secures the units through a network of landlords, brokers, and managing agents. To ensure that
the type of housing meets client needs, the Pathways to Housing Housing Department maintains
relationships with landlords. The ACT team case managers assure that clients meet their lease
requirements. Pathways to Housing rules resemble standard lease requirements.

Pathways to Housing holds the lease and sublets the unit to the client. The program assumes that
housing tenure is permanent, with no actual or expected time limits. The Housing Department
monitors repairs and lease renewals, provides all essential services (e.g., hot water and heat), and
protects tenants’ rights.

Housing units are located in low-income neighborhoods in Queens, East and West Harlem,
Westchester County, and Brooklyn. Case managers help clients select their apartments. They
try to match the clients’ choice of neighborhood or need for special accommodations. Pathways

103
New York State’s Second Chance initiative is a partnership between the New York State OMH and New York
Presbyterian Hospital to improve the care of the state’s long-stay inpatient population. Eligible individuals are those
who have resided continuously in a state psychiatric center for more than five years and have the potential for partial
recovery of functioning.
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Appendix D: Pathways to Housing, New York City

to Housing is at full enrollment. Acceptance of new referrals depends on the referral source,
availability of a housing subsidy, and ACT team capacity. New clients are assigned to an ACT
team case manager at the organization’s neighborhood office sites. The program does not rent
more than 10 percent of the units in any one apartment building so the client has the experience
of living in the larger community. Generally, the units include studio, one-bedroom and two-
bedroom apartments with a private bath. Pathways to Housing provides all essential furniture
and other items, such as a bed, mattress, bureau, table and chairs, pots, pans, dishes, telephone,
and television.

FUNDING SOURCES FOR PATHWAYS TO HOUSING

Pathways to Housing has a complex and diverse set of funding sources. Forty-two percent of the
total program funding comes from the New York State OMH. This funding includes a
combination of state-funded rental subsidies, Projects for Assistance in Transition from
Homelessness (PATH) grants, Shelter Plus Care, and state-funded ACT team service dollars.

More than 20 percent of Pathways to Housing’s funding comes through Medicaid reimbursement
of four of the six ACT teams. The Brooklyn and Westchester team services are not reimbursed
through Medicaid. The Westchester County Department of Social Services provides more than
10 percent of program funding for Westchester staff salaries and rental subsidies. OMH funding
subsidizes the salaries of the Brooklyn ACT team, which participates in the National Fidelity
Standards Project conducted by Dartmouth Psychiatric Center. The team is staffed to meet state
regulations and national fidelity standards for ACT. This includes funding for a nurse
practitioner and a job developer.
104

Sixteen percent of program funding for both housing and services comes from two HUD
supportive housing grants. These funds provide permanent supportive housing to dually
diagnosed mentally ill populations recently discharged from Rikers Island, New York City’s
largest jail. These grants serve former inmates through Project Release, awarded in 2003 and
The KEEPing Home. (See previous discussion in the section on Population Served.)

The New York City Department of Mental Health (DMH) and private donations provide the
remaining funding.

104
To comply with national ACT standards, all Pathways to Housing ACT teams hired sufficient staff . They
include employment specialists and nurse practitioners. There is a staff to client ratio of 1:10. They provide ACT
training in evidence-based practice tool-kits and techniques. Program staff describe the development of the ACT
team approach as a progression from cobbling together the services to ACT team certification and Medicaid
reimbursement. The nurse practitioner and employment specialist are viewed as key catalysts on the team. They
coordinate the client’s medical regimen, increase medication self management, and integrate the client’s vocational
goals with all other team services.
156

Appendix D: Pathways to Housing, New York City

THE TRANSITION FROM HOMELESSNESS TO PERMANENT SUPPORTIVE
HOUSING

The transition from homelessness to permanent supportive housing begins with immediate
placement into housing. It continues with the availability of an array of supportive services.

Housing Placement
Staff have routine contacts for all special programs where candidates are identified. Westchester
County Department of Social Services and the New York Presbyterian Hospital program refer
clients directly to the Westchester ACT team. Kingsboro Psychiatric Center and Kings County
Hospitals refer clients directly to the Brooklyn ACT team. To prioritize enrollment, all referrals
are centralized through the two clinical program managers. The criteria used to prioritize clients
is largely driven by funding sources and vacancies. Pathways to Housing enrolls two or three
new clients each month.

Upon enrollment, Pathways to Housing provides clients with immediate access to permanent,
independent housing. There may be a 2-week period where the client stays in a hotel, shelter, or
the Young Men's Christian Association (YMCA) until the client finds an apartment. Clients are
not required to be drug or alcohol free, acknowledge they have a mental illness, or participate in
any treatment programs. They are supposed to adhere to two requirements, Clients must agree to
two case manager visits per month. They must also pay 30 percent of their income, which is
usually Supplemental Security Income (SSI), for rent. Most clients agree to allow Pathways to
Housing to act as representative payee for this purpose. Although these are supposedly
requirements, refusal to adhere to them does not disqualify a person from the program.

HOUSING AND SERVICES FOLLOWING ENROLLMENT

Upon enrollment, while looking for an apartment, the client and a member of the ACT team
complete a Comprehensive Treatment Plan. The client rates him or herself on a number of
scales. These include family issues, personal relationships, employment, and substance abuse
issues. The plan then sets goals for improvements clients would like to make. This helps the
ACT team determine the client’s most important criteria for selecting an appropriate apartment.
Proximity to family, specific services such as medical or substance abuse treatment, and
transportation are all potential considerations. Pathways to Housing also tries to find apartments
that match the client’s preference for location, size, and safety. In some cases, clients are
encouraged to live in close proximity to a Pathways to Ho using neighborhood office to aid
communication and service provision and to reduce client isolation.

Housing
Program staff report, and clients that we spoke with confirmed, that Pathways to Housing offers
them a choice of up to three apartments. Clients reported in the focus groups that they would
have been grateful to take anything as an alternative to living on the streets: “I thought it was
too good to be true,” or “If they had offered me an apartment where my life was in danger every
157

Appendix D: Pathways to Housing, New York City

time I opened the door, I would have taken it.”
105
If an initial housing placement does not work
out, a client may ask to move. For example, one client reported that he was initially unhappy
with his apartment located in the Bronx. He didn’t know anyone or have any old friends in the
neighborhood. He preferred to live in Harlem and his case manager was able to help him move
to another apartment in West Harlem.

Services
People with serious mental illnesses and/or co-occurring substance use disorders who are
homeless have complex problems that require comprehensive treatment and services. A
multidisciplinary ACT team provides individuals with a type of “one-stop shopping” to arrange
for or receive all needed services. The ACT team that serves the area in which the client is
placed provides services following enrollment. Clients choose the array and sequencing of
support services offered by the ACT team case managers.

ACT Teams
Pathways to Housing has six ACT teams that provide a range of intensive clinical, rehabilitation,
and support services to clients in their neighborhood. Two teams are located in East Harlem.
The West Harlem, Queens, Brooklyn, and Westchester County sites each have one team. These
nine-person interdisciplinary teams of service coordinators have specialized roles. These roles
include a team leader, substance abuse specialist, nurse practitioner, part-time psychiatrist,
family systems specialist, peer counselor, wellness specialist, employment specialist, and
administrative assistant. Each ACT team is available 24 hours a day, 7 days a week to respond
to the needs of 60–70 clients. The case manager to client ratio is 1:10.

Housing is necessary, but not sufficient to help individuals with serious mental illnesses and/or
co-occurring substance use disorders who have been homeless. To regain psychiatric and
residential stability and maintain sobriety, they need unique and flexible supportive services.
The services cannot a requirement to maintain housing. The Corporation for Supportive Housing 
defines such services as: designed to maximize independence; flexible and responsive to
individual needs; available when needed; and accessible where the individual lives.
106

ACT teams spend 80 percent of their time in the community. They help clients adapt to their
homes and neighborhoods through home visits and clinical interactions. The ACT team
approach promotes the frequency and intensity of contacts. Teams meet each morning to
coordinate case monitoring. The team reviews the entire caseload and discusses most recent
client contacts, overnight emergencies, status changes, next steps, and which ACT team member
should respond. ACT team services include:

• Psychiatric and substance abuse treatment;
• Help with shopping for groceries or doing laundry;
• Medication packing;
• Targeted primary health care;
• Intensive case management;

105
The study team conducted two focus groups with Pathways to Housing clients who participated in the study. The
study team moderated these groups on June 1, 2005 (n = 1) and June 2, 2005 (n = 3).
106
Corporation for Supportive Housing, 1996.
158

Appendix D: Pathways to Housing, New York City

• Money management;
• Vocational and educational counseling; and
• The provision of job opportunities.

One of the most important team functions is the integration of substance abuse and psychiatric
services.

Case managers help new clients move into their homes and acclimate to the neighborhood. This
helps them retain housing. Case managers introduce the client to the building’s superintendent
and encourage the development of a relationship. The case manager works with the client to
learn and practice regular housekeeping chores and to meet the tenant responsibilities defined in
the lease.

An apartment visit may reveal, for example, that a “friend” has moved in or is staying overnight
with a client. The case manager may visit more frequently and remind the client that overnight
visitors are a lease violation that could jeopardize their housing. Another example is when drug
use escalates and may results in the client spending all of his or her money on drugs, leaving
nothing for food. The ACT team then intervenes as money manager, making food purchases and
reducing the client’s access to cash until the drug use subsides.

Behavioral problems resulting from substance abuse may result in housing disruptions.
Problems at Pathways to Housing primarily included failure to maintain the apartment and
behavioral issues other than those related to substance use. In some cases, the client ask to
change apartments due to drug activity in the building. Pathways to Housing clients may also
experience temporary program departures. Most frequently these are for short stays in
psychiatric hospitals or short periods of time on the streets. Following these short departures
from their permanent housing, clients typically return to the same apartment. If a client is absent
longer than 90 days, the apartment will be released. The client is still guaranteed access to a new
apartment upon program reentry.

Client Choice
Pathways to Housing emphasizes a client-driven collaborative approach to match services to
assessed and stated needs. Clients have the right to choose, refuse, and modify services and
supports. The client may choose the ACT team members with whom he or she will work. In the
Comprehensive Treatment Plan, the client identifies goals in his or her own words. Assessment
begins at intake and forms the basis of the client-driven plan, which addresses 10 domains.
These include housing retention, medical and mental health services, substance abuse treatment,
education, vocational services, and reconnecting with family and friends.

Program Requirements
As noted earlier, clients are supposed to adhere to two requirements, although they are not
disqualified from the program for failure to do so. During the focus groups, clients expressed
mixed reactions to participation in the money management program, particularly when it
involved a representative payee. Some were grateful that they did not have to budget or pay
bills, Others wanted an increased level of freedom to manage their own money.

159

Appendix D: Pathways to Housing, New York City

Also discussed previously, clients with psychiatric disabilities are not required to take
medication or participate in psychiatric treatment, although these services are available to them.
If a client requires inpatient psychiatric treatment, the apartment will be held for the duration of
treatment. Likewise, clients with substance-related disorders are not required to abstain from
alcohol or drugs, nor are they required to participate in substance abuse treatment, although these
services are available and clients’ housing would be maintained by the program if they choose to
seek treatment. If the client is absent longer than 90 days, the apartment will be released, but the
client is guaranteed access to a new apartment upon program reentry.

Employment Services
Pathways to Housing staff stress that having a job expedites recovery. The program is working
toward increasing the range of vocational services offered by hiring a job developer. About 75
tenants work for Pathways to Housing as janitors, movers, painters, or in other jobs. Each job
pays at least minimum wage. This employment can often be a stepping stone to a longer-term
employment. The Career Club offers resume building, mock interviews, and other job search
activities. Each team has a peer counselor or client advocate elected by the clients. The paid
person in this position serves as a liaison between the staff and clients.

ESSENTIAL COMPONENTS OF THE PATHWAYS TO HOUSING PROGRAM

Essential features of the Pathways to Housing program are:

• Access to Housing First—The Pathways to Housing approach emphasizes that clients must
first have housing. This provides the foundation from which to make the steps toward
recovery. The streets are not a safe or supportive place for recovery. Clients are given
immediate access to permanent individual housing, without requirements for sobriety or
treatment participation. Pathways to Housing separates the housing issues from the treatment
issues by bringing people into housing first and then working with them where they are.

• ACT Team Services Provided in the Community—Pathways to Housing uses the ACT
team structure and model to provide intensive treatment services for clients. Clients receive
services in their apartments or in the neighborhood offices in which the teams are located.
These interdisciplinary teams are modified from the original ACT teams to include a
supported housing component based on the housing first approach.
107
The primary goals of
ACT are to enhance the client’s community adjustment, decrease time spent in institutions,
and prevent the development of a chronic “patient” role. The ACT team services meet local
and national fidelity standards. Clients determined the frequency and intensity of services.
The services are integrated for effective mental health and substance abuse treatment. They
offer evidence-based practice tool-kits for case managers to help clients become self-
sufficient and live independently. Efforts to improve client skills focus especially on
activities of daily living, money management, and medication management. The Pathways
to Housing’ ACT team model includes small caseloads with staff to client ratios of 1:10. It is

107
Stein, L.I., & Test, M.A. (1980). Alternative to mental hospital treatment: A conceptual model, treatment
program, and clinical evaluation. General Psychiatry, 37, 392–397.
160

Appendix D: Pathways to Housing, New York City

neighborhood-based for client monitoring, and for the provision of needed services. It
promotes community integration.

• Housing and Treatment Services Provided Separately—Pathways to Housing rents
apartments from private landlords in the community. The program tries to not rent more than
10 percent of the units in any one building in order to minimize the number of clients with
mental illness in that building. When clients relapse into substance abuse or if psychiatric
symptoms increase, their housing status remains constant. They are not required to leave
their apartments. The team and client manage relapse crises collaboratively and services
often intensify during such periods. Decisions about intervention are up to the client, unless
the client presents a danger to self or others. This housing policy contributes to clients’
success in maintaining stable housing as it reduces the frequency of periods of homelessness.
A client may temporarily leave the housing for a short stay in a psychiatric hospital or detox
center without losing his or her permanent housing.
161

Appendix D: Pathways to Housing, New York City, NY
162

APPENDIX E: REACHING OUT AND ENGAGING TO ACHIEVE
CONSUMER HEALTH (REACH), SAN DIEGO, CALIFORNIA

The San Diego Reaching Out and Engaging to Achieve Consumer Health (REACH) program is a
county and city collaborative. This program coordinates housing, intensive case management,
employment, and mental health and substance abuse services for mentally ill homeless
individuals living on the streets. San Diego County Mental Health Services Division (CMH) is
the parent agency for REACH. CMH is a California AB 2034 program intended to bring
homeless adults with mental illness into permanent supportive housing.
108
The San Diego
Housing Commission (SDHC) is an important partner. SDHC supplies subsidies to pay for
housing provided by a network of community partners, including nonprofit organizations and
private landlords.

Most homeless mentally ill clients who come to REACH are brought from the streets into
housing by the Homeless Outreach Team (HOT) of the San Diego Police Department. Each
HOT consists of a uniformed police officer teamed with a mental health counselor and an
income maintenance worker. The teams reach out to homeless, mentally ill people living on the
streets and identify candidates for screening by a REACH outreach specialist. REACH and its
partners provide supportive services and housing to 257 homeless mentally ill persons through a
variety of housing options. These options include a safe haven, single room occupancy (SRO)
hotels, Board and Care facilities, Independent Living Facilities (ILFs), or scattered-site
apartments in San Diego. Once a client agrees to enter housing, REACH case managers provide
or coordinate the necessary supports and services to help the person stay housed.

BACKGROUND

REACH launched its program in 2000 with plans to move homeless people with mental illness
from the streets into housing quickly. During the late 1990s, concerns about the potential
displacement of homeless individuals by a downtown stadium construction project led to the
creation of the Ad Hoc Committee on Downtown Homelessness. This committee developed a
five-part Special Needs Homeless Initiative that included plans for housing and supportive
services. REACH was born when the Ad Hoc Committee applied for and received a three-year,
$10.3 million competitive state grant under California’s AB 2034 program.
109
The grant gave
the county resources to design integrated services for seriously mentally ill homeless people.

108
California Assembly Bill (AB) 2034 allocated funds to expand and provide services for homeless persons,
parolees, and probationers with serious mental illness. The California Department of Mental Health awarded funds
to 32 counties to provide housing and supportive services to this population. After a demonstration year in three
counties under AB 34, AB 2034 made funding available statewide to provide integrated services for homeless
people with mental illness.
109
AB 2034 expanded to new counties under a pilot program to integrate services for homeless adults with serious
mental illness.
163

Appendix E: Reaching Out and Engaging to Achieve Consumer Health (REACH),
San Diego
Following the grant award in December 2000, San Diego CMH contracted with two behavioral
health companies experienced in providing supportive services to homeless people with mental
illness. Telecare Corporation provides outreach and mental health case management services.
Community Research Foundation (CRF) provides employment, mental health, and substance
abuse services.

Telecare, a for-profit agency based in Alameda, California, previously operated demonstration
programs in two of three AB 2034 pilot counties in California. The agency brought a track
record of keeping homeless mentally ill people housed. Other agency outcomes included
decreases in jail time, psychiatric placements, and homelessness. San Diego CMH charged
Telecare with engaging, housing, and providing case management to 250 homeless, mentally ill,
and dually-diagnosed individuals within 6 months.

By June 2001, REACH met enrollment goals ahead of schedule. Initially the REACH program
conducted extensive traditional outreach by contacting individuals at emergency shelters, day
centers, and food lines. Once REACH had its full contingent of clients, outreach dropped off
considerably. Now most new referrals come from HOT teams. REACH program staff still do
some outreach to crisis houses and short-term psychiatric placements.

REACH experienced high turnover in the program during the early months. More than half of
the initial 250 individuals enrolled in the program left their permanent housing within the first 6
months. Many of these failures resulted from clients refusing to pay the required 30 percent of
their income for housing. This resulted from rapid enrollment of people due to the short time to
become operational. Over time, the substance abuse issue began to emerge as dominant in what
was often a cloudy clinical picture. Many of the individuals enrolled initially did not meet the
criteria of having an axis I diagnosis of serious mental illness.
110
In response to the initial
housing failures, REACH modified its intake process to improve screening for the primary axis I
diagnosis of serious mental illness.

Initially, REACH program staff relied on offering clients SRO hotel units in large downtown San
Diego buildings. This over reliance on certain SRO hotels resulted in a high density of REACH
clients in some buildings. Gradually, REACH forged relationships with other housing providers
and private landlords. They provide scattered-site, independent apartments that are
geographically dispersed across the San Diego area.
111

REACH and HOT have continued to engage individuals and provide outreach. Each new
vacancy in the program is rapidly filled. Since June 2001, REACH has remained at full
enrollment. It increased in size from 250 at program inception to 257 clients in May 2005.

110
These individuals could be characterized as having a less severe mental disorder and more severe substance
abuse disorder. This is Quadrant III in the Quadrants of Care system developed by the National Association of State
Alcohol and Drug Abuse Directors and the National Association of State Mental Health Program Directors. For
more information, see: http://ncadi.samhsa.gov/media/prevline/pdfs/bkd515.pdf.
111
Many of these original housing partners have rented to REACH clients for more than 5 years. They have long
track records of partnering with the program to house homeless adults with mental illness. Recently, REACH hired
a housing specialist to develop more independent housing options for REACH clients. REACH intends to reduce
the density of their clients in all SRO buildings to no more than 10 percent of the tenant population by the end of
2005.
164

Appendix E: Reaching Out and Engaging to Achieve Consumer Health (REACH),
San Diego
During the one-year period of this study, REACH enrolled 60 unduplicated homeless individuals
with severe mental illness into the program. The average enrollment was five or six individuals
each month. Simultaneously, the average number of clients leaving the program was five each
month. While people left for variety of reasons, most frequently clients dropped out of the
program or moved out of the area. Clients average 965 days or about 2.6 years in the program.
More than 80 percent of clients have been enrolled at least one year.
112

REACH has had the following impacts, annualized to compare the 12 months before enrollment
to the 12 months after enrollment. The 257 clients enrolled as of May 2005 have had:

• 88 percent fewer homeless days;

• A 59 percent decrease in incarceration days and 65 percent decrease in incarceration
episodes;

• A 41 percent decrease in hospital days and 52 percent decrease in hospitalization episodes;
and

• A 98 percent increase in receipt of cash and other public benefits, usually health insurance,
food stamps, Supplemental Security Income (SSI), other cash assistance.
113

POPULATION SERVED

Eligibility criteria for REACH clients include: an axis I diagnosis of mental illness; 6 months of
homelessness during the past year; and a desire to be housed through the REACH program.
REACH makes exceptions to the length of time spent homeless criteria to serve high priority
vulnerable populations. This includes seniors and young adults in transition from foster care.

As of May 2005, two-thirds of the REACH population had a dual diagnosis of mental illness and
substance abuse. The remaining one-third of the population had a diagnosis of mental illness.
Women comprise 43 percent of the REACH population. Program staff estimate that 70–80
percent of the people they house lived on the streets prior to program entry. They also estimate
that the other people come from shelters or short-term psychiatric placements. Twenty-five of
29 (86 percent) clients tracked for this study met HUD’s definition for being chronically
homeless.
114, 115
The four enrollees who did not meet the definition of chronically homeless
were referred from other mental health providers. They were high priority, vulnerable people,

112
Data obtained from AB 2034 statewide outcomes collection and reporting system, found on www.AB34.org.
113
These benefits and assistance do not include housing subsidies, which most REACH clients have.
114
For the current study, staff at REACH tracked 29 clients over a 12-month period using standard data collection
instruments. The methodology for the study is more fully described in Appendix A to this report.
115
A chronically homeless person is defined as an unaccompanied homeless individual with a disabling condition
who meets one of two criteria. The person has either been continuously homeless for a year or more or has had at
least four episodes of homelessness in the past 3 years. To be considered chronically homeless, a person must have
been sleeping in a place not meant for human habitation (e.g., living on the streets) or in an emergency shelter
during that time. An episode is a separate, distinct and sustained stay on the streets or in an emergency homeless
shelter.
165

Appendix E: Reaching Out and Engaging to Achieve Consumer Health (REACH),
San Diego
including homeless and disabled young adults, one older veteran, and one woman.

THE TRANSITION FROM HOMELESSNESS TO PERMANENT SUPPORTIVE
HOUSING

Most referrals to REACH are through HOT, which engages the hardest-to-serve street homeless
people with mental illness. HOT assesses the needs of potential clients, qualifies them for
services, and helps place them in suitable programs. Other referrals come from hospitals, crisis
houses, and self-referrals. In addition, other outreach programs make referrals. Examples
include the cold weather program outreach (December–March), Rachel’s Center (emergency
drop-in for women), and Friend to Friend Clubhouse.

More than 1,383 people are identified as chronically homeless in the San Diego area. HOT has
identified and visit a subset daily at known locations within the city. Increased enforcement of
San Diego’s “illegal lodging” law may be encouraging homeless people to seek shelter. This law
allows police to cite and arrest homeless people for sitting or sleeping in public places. Each
year the police arrest or ticket several thousand people.

Housing Placement
Most REACH clients come directly from the streets through HOT. The HOT may have been
working with a homeless person for many weeks to convince the person to come into housing.
The HOT focuses on people who are more likely to have mental illness as a primary problem and
are not likely to get arrested. When HOT encounters alcoholics, it offers rehabilitation and help
getting into appropriate care if they are interested.
116

HOT is part of the San Diego Police Department. Thus, there is an inherent question about
whether clients believe they have a choice about entering housing. One focus group participant
noted, “HOT brought me here. I had been homeless off and on. They said they would bring me
here or to jail.” A former REACH mental health worker has joined HOT, acting as a liaison
between REACH and HOT.
117

Besides the teams, REACH has an outreach specialist who works with mentally ill people on the
streets. This specialist tracks clients, by name, when they receive outreach. They are tracked in
a program database, which includes the disposition of the encounter. The outreach specialist
reports daily on the clients who are ready to enter the program. This must be coordinated with
those that HOT identified as being ready to enter the program. Openings occur frequently and
clients can be housed temporarily in the safe haven while awaiting permanent housing. While
REACH had an official waiting list in the past, staff found that a lot of people moved or received
other services. Staff report that, instead, they search for the most vulnerable people who are not
looking for services.

116
The Serial Inebriates Program is based on a “drug court” type of model targeted to chronic alcoholics. It forces
them to choose between extended time in jail or treatment and social services.
117
On May 18, 2005, the study team conducted two focus groups with REACH clients who participated in this
study. Eleven clients participated in the first focus group and three in the second group. The methodology for these
focus groups and the discussion guide used to prompt the discussions may be found in Appendix A to this report.
166

Appendix E: Reaching Out and Engaging to Achieve Consumer Health (REACH),
San Diego
After the mentally ill homeless person agrees to enter housing and a unit becomes available, the
individual accompanies HOT members to REACH for screening and program enrollment. If the
client was previously unknown to the outreach staff, screening involves confirming that the
client meets enrollment criteria. After learning a client’s name, the outreach specialist gathers
pre-enrollment information. This includes verification of the client’s mental illness diagnosis
and any records on previous hospitalizations, incarcerations, and benefits. For those brought by
HOT, REACH confirms that the client is voluntarily agreeing to enroll in the program rather than
feeling coerced by a police presence.

Most transitional or permanent supportive housing programs in San Diego’s continuum of care
have strict prohibitions against drug and alcohol use. The REACH outreach specialist and HOT
recruit homeless mentally ill persons directly from the streets into “housing.” Housing most
often means placement in a safe haven funded by AB 2034 funds and operated by Episcopal
Community Services (ECS). The safe haven plays an important role in the REACH program
because there are not sufficient permanent supportive beds available.

Some people need less structure and more in services than what is offered by the safe haven and
existing service programs. REACH staff may use the many other housing options described
earlier, in addition to scattered-site apartments.

REACH recently reimplemented a Housing Committee. This Committee meets weekly to make
policy decisions and evaluate individual cases. The Committee tries to ensure fair and equitable
distribution of the limited housing resources. It also endeavors to provide choices, empowering
clients to obtain housing at the highest possible level of independence. The Housing Committee
includes a Member Forum and an Apartment Living Support Group. The Member Forum
provides a venue for REACH clients to discuss and make suggestions about housing. Clients
may also discuss challenges, fears, successes, and questions related to housing. The Apartment
Living Support Group provides support for clients currently living independently in apartments
and those who may be considering living independently. This group allows clients to share their
positive experiences and challenges and offer support to one another.

HOUSING FOR REACH CLIENTS

While the REACH program offers placement into housing without requirements for treatment or
sobriety, many of the housing options have strict requirements or rules restricting substance use.
Most clients first enter either a safe haven or an SRO hotel. Most housing agreements have
requirements regarding visitors, disruptive behavior, and substance use. REACH staff make it
clear to clients, however, that the program will help them maintain permanent housing. Some
clients who experience difficulty with the housing requirements require additional case
management support to either solve the problems or move to another housing location with fewer
rules. Some clients demonstrate housing stability in the safe haven or SRO and may stay for
long periods. Depending on housing stability, some clients are placed in scattered-site apartments
within a few months of enrollment. The following sections describe these primary housing
locations.
167

Appendix E: Reaching Out and Engaging to Achieve Consumer Health (REACH),
San Diego
Safe Haven
The ECS safe haven occupies a 19-unit building. It is operated with funding from the AB 2034
program. A resident assistant is on-site 24 hours a day. Residents have their own apartments,
which includes a door that can be locked, a refrigerator, and a sink. Residents share bathrooms.
Meals are prepared for the residents or they can prepare their own food in shared kitchen
facilities.

The ECS safe haven has more extensive requirements for entry and occupancy than most safe
havens. Prior to entry, new residents must sign a rental housing agreement. Rental agreements
require that clients pay 30 percent of their monthly income for rent. They must adhere to a 10
p.m. weekday curfew. They may not have overnight visitors. Clients must agree to weekly
room inspections (more frequently if needed). In addition, there can be no violence or verbal
aggression, no weapons, and no alcohol or drug possession or use. Residents must sign-in and
sign-out whenever entering or leaving the premises.

REACH places clients least known by the REACH case managers in the safe haven for an
assessment periods. However, the length of stay varies. If clients prefer the safe haven they can
stay up to 18 months. Occasionally, a REACH client will choose to remain in the safe haven for
more than one year. But most clients find alternative housing within two weeks.

Single Room Occupancy (SRO) Hotels
The primary housing resources available prior to REACH were the safe haven and 100 project-
based, Section 8 subsidies used for rental units in old SRO hotels in the downtown area. Many
of the hotels are located around downtown San Diego near the new ballpark. These hotels used
as SROs are the Metro Hotel, the Plaza Hotel, and Island Village. The advantage of these older
SRO buildings is that they provide relatively inexpensive downtown apartments. Rents range
from $300–$600, depending on size and location. Such affordable housing is extremely scarce
in the San Diego area. New condominiums under construction in the area around the ballpark
start at prices as high as $600,000.

The Metro Hotel provides the largest number of housing units for REACH clients of any of the
REACH housing providers. Clients currently rent 38 of 200 units in this SRO building.
Operated by a private landlord, each unit has a sink, a small refrigerator, and a small kitchen
area. Men’s and women’s common bathrooms are located on each floor. There are common
areas for socializing, television viewing, and computer use. Coin-operated laundry facilities are
located on the main floor. The building is older, and many of the units are in need of extensive
repairs. As units turn over, the landlord is refurbishing them with new countertops and tile
flooring. Despite these improvements, many focus group participants who were current or prior
residents at the Metro Hotel complained about the small units and deteriorated facilities.

The landlord provides property management services on site, primarily to provide security in the
building. The Metro Hotel has a zero tolerance policy for alcohol use and drug activity on the
premises. Signs posted in the lobby clearly state that drugs and alcohol are prohibited in the
building. Both REACH staff and clients confirmed problems with living conditions at the Metro
Hotel, including concerns about safety and housing quality. A client who previously lived
outside at Balboa Park stated, “I would rather be in the park. It’s a battle to dodge the drugs.”
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Another client commented, “Sometimes it feels like I’m living in a jail cell...my room at the safe
haven was twice as big.” Clients expressed fewer concerns about other housing situations.

Some problems with vandalism, crime, drug activity, and prostitution have been linked to
REACH clients. Local respondents all acknowledged, however, that some problems were due to
the transient nature of the building’s other tenants. REACH clients are often vulnerable to illegal
traffickers and drug addicts on the streets. Sometimes they fall prey to allowing this activity in
their apartments. The landlord closely monitors visitors and illegal activities in the building. He
can contact the REACH case managers when they suspect that a REACH client is in trouble or
causing a disturbance.

As of May 2005, concern over the high density, client complaints, and numerous housing
problems led REACH to administer a housing choice questionnaire to all clients at the Metro
Hotel. This was designed to help them relocate to their housing of choice. REACH’s goal is to
reduce the number of clients in the Metro Hotel to a maximum of 15 units by December 2005.
The other SRO hotels associated with REACH have a smaller number of program clients,
resulting in a lower density of mentally ill clients. The Plaza Hotel had 20 REACH clients.
According to REACH staff, the on-site property manager at the Plaza Hotel is a former convict
who reformed his life. He is more tolerant and understanding of REACH clientele. Seven clients
lived at the Lynne Hotel.

Scattered-Site Apartments
As of May 2005, 56 REACH clients were living in scattered-site apartments. Most scattered-site
apartments are located in the eastern part of the city where rents are more affordable. Many
REACH clients are in apartment buildings that are managed by landlords who collaborate with
REACH. Sixteen clients were paying their own rent while the remaining units were subsidized
through a variety of sources. (See page 8.) One housing developer and manager specifically
allocate units for REACH clients. A total of 16 clients are in the Delmar Apartments, Reese
Village, and Paseo Glenn.

Because there is a waiting list for scattered-site apartments, these units go to less impaired
REACH clients. Usually these clients have done well at the SRO hotels. During the screening
process, case managers interview clients about their daily activities. They also assess client
interest in scattered-site housing, level of independence, income, sobriety, budgeting, ability to
prepare food, and medication management.

Clients in the focus group understand that they must progress to be able to enter a scattered-site
unit. One client described his experience of moving into housing. “For me it happened really
fast…. I spent two weeks in a crisis house and then I went to the Metro Hotel for three months.
It was noisy and I didn’t like it. So I got independent living in a studio apartment in Old Town.
But I still dream about sleeping on the street.” Most clients in the focus group said that there
were few housing choices, but expressed little dissatisfaction unless they were living in the
Metro Hotel.
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The responses of focus group participants about housing choices were mixed. One client stated
that his housing was “not imposed, but REACH directed me.” Another said, “I didn’t care, I
trusted REACH.” A third client reported, “I took what was offered, but now I’m working on
getting another place.”

Other living situations include ILFs. An ILF provides a one-room rental with one shared bath
for every three residents. These facilities are not licensed to distribute medications, only to
remind people and support them. There are no “house rules” but many landlords have strict
provisions against substance use. Another type of placement is a Board and Care facility. These
facilities are licensed by the state to distribute medications and provide meals. Nineteen of the
more impaired REACH clients were in Board and Care facilities.

Housing Agreements and Leases
When REACH houses a client, a case manager is assigned and the client signs a lease. Residents
at the safe haven sign a housing agreement with the assistance of their HOT member or REACH
case manager. The safe haven housing agreement and lease documents do include provisions
that the resident may be evicted for criminal activity, drug use, or violence in or near the
property. To a certain extent, the program pays the rent, but the client typically pays a portion.
For some, the client pays all of their rent and receives help with food and transportation
vouchers. Clients are fully responsible for following through on paying rent but the program will
remind them. If the client has not paid rent and the program knows the landlord, the landlord
will call REACH to report that a client has not paid rent.

Telecare sometimes acts as the representative payee for clients. One other organization—The
Organizer—also act as representative payee for some REACH clients.

FUNDING SOURCES FOR HOUSING AND SERVICES

SDHC provides 100 project-based Section 8 subsidies for REACH clients. The Association for
Community Housing Solutions (TACHS) provides Shelter Plus Care rental assistance at three
different housing complexes. TACHS also provides rental assistance for other scattered-site
housing. The Tom Behr Foundation provides scattered-site apartments using project-based
Section 8 and Shelter Plus Care subsidies at four complexes.

SDHC and TACHS fund the housing portion of the program. The state-funded AB 2034
program, operating through San Diego CMH, funds mental health and other program services.
REACH is able to finance a significant portion of services through Medicaid (Medi-Cal in
California) billing after clients begin receiving SSI and Medi-Cal. The additional Medi-Cal
revenue pays for staff positions, services, and housing for more clients. SDHC participation
allows San Diego to use most AB 2034 funding for supportive services that serve more people,
rather than devoting most state funding to housing. Case managers use program funding to
house those clients that have zero income. Once clients secure SSI or employment income, they
can use it to offset rental expense.
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HOUSING AND SERVICES FOLLOWING ENROLLMENT

The outreach specialist at REACH screens homeless people in the community. The specialist
also acts as a liaison to HOT and identifies and prioritizes mentally ill clients most in need.
REACH case managers assess each client’s needs, develop a service plan, and help clients obtain
basic services, such as clothing, food, and medical treatment. As noted earlier, most clients stay
at the ECS safe haven during this assessment period. Some assessments may take up to 30 days,
but some clients are immediately placed into an SRO apartment. REACH case managers work
with clients to find housing of choice as soon as they are “ready.” A San Diego County
probation officer assigned to REACH helps to resolve any outstanding warrants, illegal lodging
tickets, or other issues that could prevent a client from obtaining housing.

REACH case managers consider several factors when placing clients in housing. These include
the client’s level of functioning, client resources, the degree of impairment, need for psychiatric
services, and behavioral difficulties. If clients have resources, such as SSI or Medi-Cal, they
may be able to pay part or all of their own rent. Sometimes clients must be prioritized for moves
due to landlord complaints. Case managers work closely with each client to find his or her
housing of choice. Most clients who attended the focus groups, however, felt that they had very
little choice in housing.

Housing Moves
Approximately half of REACH clients experienced frequent moves following enrollment.
Reasons included temporary periods of homelessness, emergency psychiatric placements, short-
term drug or alcohol treatment, and time spent in jail or prison. Some clients experienced
permanent housing moves to more or less supportive environments.

Once enrolled in REACH, case managers followup with clients regardless of where they move.
Team members visit clients within 72 hours of a psychiatric placement. They dispatch the
outreach team to locate clients if they have returned to the streets and homelessness for a period
of time. CRF staff members followup with clients in the evenings to ensure that their needs are
met.

Housing moves may be related to specific housing problems. Regardless of when housing
problems occur, the case management team responds to the problem with the best solution for
the client and for the landlord. Most housing problems identified during the study were related
to drug or alcohol use and other behavioral problems. Most clients are diagnosed with
schizophrenia or other psychotic disorders. Many, if not most, suffer from years of substance
abuse. REACH clients are very impaired when they first enter housing. Symptoms from these 
serious disorders often result in disturbances or housing problems that are not tolerated within
private market housing.

Depending on the nature of the housing problem, particularly if it involves a lease violation,
behavioral intervention may be needed to preserve the client’s housing. For example, housing
problems may be solved by removing a friend who is temporarily staying with the client. It may
be necessary to clean or repair problems caused by hoarding, fire setting, or flooding. The client
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may need to be placed in a short-term more supportive environment. In the most extreme cases,
the client may be moved to other housing.

REACH clients experience moves for positive reasons as well. Improvements in functioning,
employment, and independence can result in housing placements in scattered-site apartments,
with or without on-site case management. In the focus groups, one former resident of the Metro
Hotel, now living in a scattered-site apartment, remarked “Something better is on the way if you
stick with it.” One of the clients from the study sample who left the program during the first
12 months now lives in independent housing in Las Vegas. This client reported that “The Metro
Hotel got me ready for where I live now. If I hadn’t been living there, I don’t know if I could
live where I am living at now.”

REACH Case Management Services
Within the REACH program, one case manager is assigned to each client at enrollment. There
are no treatment requirements other than meeting with the case manager two times per month.
Service plans are client-driven and adjusted, as needed, each time the case manager meets with
the client. At 6 months, service plans are formally reviewed with the client.

Clients expressed positive feelings for REACH case management services. One client said,
“They want to know all your problems and then they deal with everything fast. They take over
the thinking process. You don’t have to think about it.” Another client reported that, “The
others (programs) have too many rules. There are no threats here.” A third client stated that
“REACH told me I would never be homeless again.”

The relationship between case managers and clients is a key component in the rehabilitative
process. The case manager offers support and guidance as the individual works to achieve his or
her life goals. Program services are client-centered and highly individualized, emphasizing
personal choice and empowerment. The REACH case manager helps clients obtain a full range
of services, in addition to the basic necessities of food, clothing, and stable housing. These
services are designed to help clients retain housing and reduce the risk of harm associated with
ongoing addiction. These services may include:

• Medical and psychiatric services;
• Crisis response;
• Case management;
• Money management;
• Connections to self-help and community resources;
• Substance abuse intervention;
• Education and counseling;
• Vocational services;
• Help obtaining entitlements;
• Assistance in the development of peer relationships; and
• Support and education of family and significant others.
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Each case manager carries a caseload of no more than 23 clients. The REACH program is
currently divided into two teams. Each team consists of a supervisor and six case managers
serving a caseload of 130 clients. To serve so many clients over such a broad range of housing
types, REACH adopted a team approach. The Telecare team provides clinical case management
services to the client in the community. Other services such as employment, psychiatric,
rehabilitative, and nursing services, are provided through another contractor, CRF. CRF is
located in the same central administrative office location with Telecare, but case managers must
make a formal referral to obtain CRF services for their clients. Two separate systems of record
keeping must also be maintained to assure client confidentiality and to meet federal regulations
for medical information sharing.

Recently improved communications between the two separate contractors have resulted in better
case collaboration. The CRF director now meets with the Telecare teams during their morning
team meetings. The CRF director updates all staff on key changes and informs them about
which clients saw the nurse or medical doctor and what was done. The CRF director also
collects information on any major client status changes reported by Telecare case managers.

Each day starts with a team meeting where the team reviews all clients to identify major changes
or emergencies from the previous day and night. These meetings allow supervisors to collect
information needed for AB 2034 program reporting. This includes jail or hospital admissions and
contacts with clients (required at least once every two weeks). The meetings also provide an
opportunity for case managers to share information and request assistance. For example, if a
case manager plans to visit a particular apartment complex where several clients live, that case
manager may help another case manager’s client. The case manager may take a client to an
appointment or bring back information to the client’s assigned case manager.

An example of team coordination can be seen in REACH’s approach to medication management.
The CRF nurse practitioner member of the treatment team first helps the client package the
medication. Then the nurse educates the client about the medication and when the client should
take it. This is followed by frequent reminders to the client to take the medication. The level of
assistance gradually decreases as clients become ready to package and take medication
independently. Clients demonstrate improvement in independent medication management with
this approach and no longer need reminders. However, if medication management becomes a
problem, it may be several days before the client’s symptoms or behavior indicate that he or she
is decompensating.

Staff estimate that fewer than 10 percent of cases require staff to initiate a representative payee
arrangement. When a payee is required, REACH will often serve as the representative payee for
clients. None of the clients in the focus groups who said they had a representative payee
objected publicly to the arrangement.
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ESSENTIAL COMPLEMENTS OF THE REACH PROGRAM

Staff at REACH identified the key elements they say are needed for a successful Housing First
program:

• Direct Placement into Housing—REACH separates the housing issues from the treatment
issues by bringing people into housing first and then working with them where they are.
Although clients have immediate access to housing without program requirements for
sobriety or treatment participation, REACH clients sign leases with private landlords
requiring case managers to develop collaborative relationships with landlords to support
clients in their housing in the community. When a client causes a housing problem, case
management staff attempt to find a remedy that responds to both the landlord and the client
concerns. If necessary, case managers will help clients find alternative housing, doing
“whatever it takes” to help the client maintain permanent housing in the community.
REACH and its service provider partners’ clinical expertise allows it to respond to the
complex needs of chronically homeless people.

• Mental Health Case Management Services in the Community—Regardless of the degree
of impairment, individuals have the potential to live successfully in the community when the
necessary supports are available, according to REACH. The mental health case management
teams have three primary goals. The first is to enhance the client’s community adjustment.
The second is to decrease time spent in institutions. And the third is to help clients live
independently, especially in the areas of activities of daily living, money management, and
medication management.

• Housing and Treatment Services Provided Separately—REACH staff acknowledge that
housing this population across a large geographic area is challenging. However, the 24 hours
a day, 7 days a week availability of case management staff makes it work. When clients
relapse into substance abuse or experience increases in psychiatric symptoms, their housing
status remains constant. The team and client manage relapse crises collaboratively and
services often intensify during such periods. Decisions about intervention are up to the client
unless the client presents a danger to self or others. This housing policy contributes to
clients’ success in maintaining stable housing as it reduces the frequency of periods of
homelessness. Although a client may temporarily leave housing for a short stay in a
psychiatric hospital or detoxification center, the client does not lose his or her permanent
housing. Nor is the client discharged to homelessness upon completion of treatment.

• Careful Monitoring of Outcomes—Telecare is a licensed, for-profit provider of mental
health services under contract with county government. As a private contractor, Telecare
must meet high performance standards to receive contract renewals. Therefore the focus is
on the impact of services on client outcomes. REACH tracks this performance data over
time. This data and prior experience helps REACH effectively monitor clinical and financial
risk. Mental health service delivery has long emphasized outcome tracking and practice
evaluation. The more recent attention to the bottom line is a matter of survival in a
competitive service industry. REACH supportive services are Medicaid-billable and
regulations specify minimum standards of practice.
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• New Directions for REACH—The REACH program is the newest program of the three
sites selected for this study. Staff are still determining how to enhance their program and
services to improve outcomes for people with mental illness living on the streets. During the
last year, REACH hired a housing specialist to develop more housing options for clients,
including options funded through the Mental Health Services Act. This will help to move
clients out of the downtown SROs into more independent housing.
118

118
Mental Health Services Act—MHSA (Proposition 63) passed in November 2004 and became effective January 1,
2005. The MHSA assures state funding for the planning and implementation of new and innovative children, adult,
and older adult mental health services and programs in California counties. For more information see
www.sandiego.networkofcare.org/mh.
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176

APPENDIX F: GLOSSARY

ACCESS Access to Community Care and Effective Services and Supports Program
ACT Assertive Community Treatment
APR Annual Progress Report
CASES Center for Alternative Sentencing and Employment Services
CHASERS Client Housing and Services Entry and Reporting System
CMH San Diego County Mental Health Services Division
CRF Community Research Foundation
DESC Downtown Emergency Service Center
DMH New York City Department of Mental Health
DSM Diagnostic and Statistical Manual
ECS Episcopal Community Services
GA General Assistance
GED General Educational Development
HOPWA Housing Opportunities for Persons with AIDS
HOST Homeless Outreach, Stabilization, and Transition Program
HOT Homeless Outreach Team
HUD U.S. Department of Housing and Urban Development
KEEP Key Extended Entry Program
ILF Independent Living Facility
KEEP Key Extended Entry Program
MOU Memorandum of Understanding
NRC Narcotics Rehabilitation Center
NSHAPC National Survey of Homeless Assistance Providers and Clients
OMH New York State Office of Mental Health
PATH Projects for Assistance in Transition from Homelessness
REACH Reaching Out and Engaging to Achieve Consumer Health
SDHC San Diego Housing Commission
SHA Seattle Housing Authority
SHP Supportive Housing Program
SRO Single Room Occupancy
SSDI Social Security Disability Income
SSI Supplemental Security Income
TACHS The Association for Community Housing Solutions
TANF Temporary Assistance for Needy Families
WRMA Walter R. McDonald & Associates, Inc.
YMCA Young Men’s Christian Association
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Appendix F: Glossary

178

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