H U D   S E C T I O N   8 1 1   P R A

Project Rental Assistance Program

Six Case Studies on 

the Implementation 

Experience of the 

2012 Grantees

U.S. Department of Housing and Urban Development | Office of Policy Development and Research 

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H U D   S E C T I O N   8 1 1   P R A

Project Rental Assistance Program

Six Case Studies on

the Implementation

Experience of the

2012 Grantees

Prepared for 

U.S. Department of Housing and Urban Development

Prepared by 

Rebecca Northrop

Christopher Jones

Dalton Laluces

La Tonya Green

Kenya Crumel

BCT Partners

Melissa Vandawalker

Meghan Henry

Claudia Solari

Gretchen Locke

Jill Khadduri

Abt Associates

January 2018

Acknowledgments

Acknowledgments

This case study report is one of two major deliverables of the first phase of the evaluation of the Section 811 Project Rental Assistance program. We acknowledge the talented efforts of 

many individuals who and organizations that have assisted in carrying out this work. These 

organizations include the U.S. Department of Housing and Development, Technical Assistance 

Col aborative, and Centers for Medicare and Medicaid Services. 

We also acknowledge the assistance of the 811 Project Rental Assistance program grantees.

•  California Grantee Partnership—California Housing Finance Agency, California Department of Health Care Services, California Department of Housing and Community Development, 

California Tax Credit Al ocation Committee, and California Department of Developmental 

Services. 

•  Louisiana Grantee Partnership—Louisiana Housing Corporation, Louisiana Housing 

Authority, and Louisiana Department of Health.

•  Maryland Grantee Partnership—Maryland Department of Housing and Community 

Development, Maryland Department of Health and Mental Hygiene, and Maryland 

Department of Disabilities.

•  Minnesota Grantee Partnership—Minnesota Housing Finance Agency and Minnesota 

Department of Human Services. 

•  Pennsylvania Grantee—Pennsylvania Housing Finance Agency and Pennsylvania 

Department of Human Services. 

•  Washington Grantee Partnership—Washington Department of Commerce and Washington 

State Department of Social and Health Services.

Disclaimer

The contents of this report represent the views of the authors and do not necessarily reflect the views or policies of the U.S. 

Department of Housing and Urban Development or the U.S. government.

 Contents

Contents

Executive Summary .............................................................................................................................ix

Background of the Section 811 Project Rental Assistance Program  ................................................ 1

The Section 811 and PRA Programs ................................................................................................................................ 1

Evaluation of the Section 811 PRA Program .................................................................................................................. 2

A Descriptive Overview of the Six Case Study States  ................................................................................................. 3

811 Program Designs ......................................................................................................................................................... 3

Housing Context ................................................................................................................................................................. 3

Services Context ................................................................................................................................................................. 7

How Does the Section 811 PRA Model Fit?  ................................................................................................................... 8

California Section 811 Project Rental Assistance Program...............................................................11

Introduction ........................................................................................................................................................................11

Grantee Partnership, Organizational Structure, and Management  .........................................................................11

Background Leading to the 2012 811 PRA Application .................................................................................................................12

Program Financial Structure  ..........................................................................................................................................................13

State Context: Housing Programs ................................................................................................................................. 13

Housing ............................................................................................................................................................................................13

Existing Programs  ..........................................................................................................................................................................14

How the 811 PRA Program Fits With Other State Programs .........................................................................................................15

How Major Housing Assistance Programs Are Used To Assist the Target Population ...............................................................15

Local Issues—Housing Affordability and the Rental Market ........................................................................................................15

Service Provision and Healthcare .................................................................................................................................. 16

Current Status of Service and Healthcare Programs That Support Community Living ..............................................................16

Recent Changes in Programs That Support Integrated Community Living  ................................................................................17

How the 811 PRA Program Fits With the Service and Healthcare Programs That Support Community Living .........................18

California’s Olmstead Plan ..............................................................................................................................................................18

Population Served ............................................................................................................................................................ 18

Comparison of Target Populations: Planned Versus Actual .........................................................................................................18

Skilled Nursing Facilities .................................................................................................................................................................18

Regional Centers .............................................................................................................................................................................18

Developmental Centers ...................................................................................................................................................................19

Outreach, Referral, and Application .............................................................................................................................. 19

Outreach, Referral, and Application Process .................................................................................................................................19

Target Population Screening and Eligibility ....................................................................................................................................19

Implications of Target Population and Outreach and Referral Methods ..................................................................................... 20

Housing Strategies ........................................................................................................................................................... 20

Property and Unit Characteristics  ................................................................................................................................................ 20

Property Selection Methods and Financing .................................................................................................................................. 21

Implementation Schedule .............................................................................................................................................................. 21

Rent and Subsidy Levels ................................................................................................................................................................ 21

Unit and Tenant Turnover ............................................................................................................................................................... 22

Service Provision and Coordination .............................................................................................................................. 22

Ongoing Services ........................................................................................................................................................................... 22

Coordination of Services and Housing ......................................................................................................................................... 22

Gaps in Services ............................................................................................................................................................................ 22

2013 811 PRA Application ................................................................................................................................................ 23

Leveraging ......................................................................................................................................................................... 23

Program Administration, Assessment, Information Systems, and Data Infrastructure ....................................... 23

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Successes and Challenges ............................................................................................................................................. 23

Factors Contributing to Program Success .................................................................................................................................... 23

811 PRA Program Challenges .........................................................................................................................................................24

Louisiana Section 811 Project Rental Assistance Program .............................................................. 27

Introduction ....................................................................................................................................................................... 27

Grantee Partnership, Organizational Structure, and Management ......................................................................... 27

Background .................................................................................................................................................................................... 27

Partnerships and Organizational Structure ................................................................................................................................... 27

Program Financial Structure .......................................................................................................................................................... 28

State Context: Housing Programs ................................................................................................................................. 29

Housing Policy ................................................................................................................................................................................ 29

Existing Programs .......................................................................................................................................................................... 29

Rental Housing Market ................................................................................................................................................................... 30

Service Provision and Healthcare .................................................................................................................................. 30

Policy ............................................................................................................................................................................................... 30

Recent Changes Supporting Community Living .......................................................................................................................... 30

Expansion of Medicaid 1915(c) HCBS Waivers .............................................................................................................................31

Olmstead Plans, Settlements, Consent Decrees ..........................................................................................................................31

Population Served ............................................................................................................................................................ 31

Outreach, Referral, and Application .............................................................................................................................. 32

Outreach, Referral, and Application Methods .............................................................................................................................. 32

Target Population Eligibility ............................................................................................................................................................ 32

Implications of Outreach, Referral, and Application Methods on Individuals Referred and Placed .......................................... 32

Housing Strategies ........................................................................................................................................................... 32

Property and Unit Characteristics ................................................................................................................................................. 32

Property Selection Methods and Financing .................................................................................................................................. 32

Property Selection Process ........................................................................................................................................................... 33

Implementation Schedule .............................................................................................................................................................. 33

Rent and Subsidy Levels ................................................................................................................................................................ 33

Unit Offers and Tenant Turnover .................................................................................................................................................... 33

Service Provision and Coordination .............................................................................................................................. 34

Service Models ............................................................................................................................................................................... 34

Coordination of Services and Housing ......................................................................................................................................... 34

Service Provision (Types, Transition Versus Ongoing, by Target Population, Gaps) .................................................................. 35

2013 811 PRA Application ................................................................................................................................................ 36

Leveraging ......................................................................................................................................................................... 36

Program Administration, Assessment, Information Systems, and Data Infrastructure ....................................... 36

Successes and Challenges ............................................................................................................................................. 36

Successes ...................................................................................................................................................................................... 36

Challenges ...................................................................................................................................................................................... 37

Maryland Section 811 Project Rental Assistance Program .............................................................. 39

Introduction ....................................................................................................................................................................... 39

Grantee Partnership, Organizational Structure, and Management ......................................................................... 39

Overview ......................................................................................................................................................................................... 39

Maryland Department of Housing and Community Development ............................................................................................... 39

Maryland Department of Health and Mental Hygiene .................................................................................................................. 39

Maryland Department of Disabilities ............................................................................................................................................. 40

Partnership ..................................................................................................................................................................................... 40

Design and Structure of Maryland’s 811 PRA Program ............................................................................................................... 40

811 PRA Roles and Responsibilities ...............................................................................................................................................41

Program Staffing ............................................................................................................................................................................ 42

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State Context: Housing Programs ................................................................................................................................. 42

Financing......................................................................................................................................................................................... 42

Supportive Housing Programs ...................................................................................................................................................... 43

Additional Federal Housing Programs .......................................................................................................................................... 44

Service Provision and Healthcare.................................................................................................................................................. 44

Funding ........................................................................................................................................................................................... 46

Olmstead Settlement ..................................................................................................................................................................... 46

Population Served ............................................................................................................................................................ 46

Outreach, Referral, and Application .............................................................................................................................. 47

Outreach ..........................................................................................................................................................................................47

Referral and Application ..................................................................................................................................................................47

Implications ..................................................................................................................................................................................... 48

Housing Strategies ........................................................................................................................................................... 48

Property and Unit Characteristics ................................................................................................................................................. 48

Rent and Subsidy Levels ................................................................................................................................................................ 49

Unit and Tenant Turnover ............................................................................................................................................................... 50

Service Provision and Coordination .............................................................................................................................. 50

Service Provision ............................................................................................................................................................................ 50

Coordination ................................................................................................................................................................................... 50

2013 811 PRA Application ................................................................................................................................................ 50

Leveraging ......................................................................................................................................................................... 51

Housing Choice Vouchers...............................................................................................................................................................51

Other Sources Leveraged ...............................................................................................................................................................51

Program Administration, Assessment, Information Systems, and Data Infrastructure ....................................... 51

Program Administration ..................................................................................................................................................................51

Financial Management ................................................................................................................................................................... 52

Information Systems ...................................................................................................................................................................... 52

Successes and Challenges ............................................................................................................................................. 52

Challenges ...................................................................................................................................................................................... 52

Successes ...................................................................................................................................................................................... 53

Minnesota Section 811 Project Rental Assistance Program  ........................................................... 55

Introduction ....................................................................................................................................................................... 55

Grantee Partnership, Organizational Structure, and Management ......................................................................... 55

Overview ......................................................................................................................................................................................... 55

Minnesota Housing Finance Agency ............................................................................................................................................. 55

Minnesota Department of Human Services .................................................................................................................................. 55

Minnesota Housing and Department of Human Services Partnership ....................................................................................... 56

Design and Structure of Minnesota’s 811 PRA Program .............................................................................................................. 56

811 PRA Roles and Responsibilities .............................................................................................................................................. 57

Program Funding ............................................................................................................................................................................ 58

State Context: Housing Programs ................................................................................................................................. 59

Housing Programs .......................................................................................................................................................................... 59

Rental Housing Market ................................................................................................................................................................... 60

Service Provision and Healthcare .................................................................................................................................. 61

Changes in Medicaid Resources ................................................................................................................................................... 62

Olmstead Settlement ..................................................................................................................................................................... 62

Population Served ............................................................................................................................................................ 62

Outreach, Referral, and Application .............................................................................................................................. 63

Outreach ......................................................................................................................................................................................... 63

MFP Outreach................................................................................................................................................................................. 63

PATH Long-Term Homelessness Outreach ................................................................................................................................... 64

Referral and Application ................................................................................................................................................................. 64

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Implications ..................................................................................................................................................................................... 64

Housing Strategies ........................................................................................................................................................... 65

Property and Unit Characteristics ................................................................................................................................................. 65

Determining the Initial Rent Level .................................................................................................................................................. 66

Unit and Tenant Turnover ............................................................................................................................................................... 67

Service Provision and Coordination .............................................................................................................................. 67

Service Provision ............................................................................................................................................................................ 67

Coordination of Services................................................................................................................................................................ 67

2013 811 PRA Application ................................................................................................................................................ 68

Leveraging ......................................................................................................................................................................... 68

Housing Choice Vouchers.............................................................................................................................................................. 68

Other Sources Leveraged .............................................................................................................................................................. 68

Program Administration, Assessment, Information Systems, and Data Infrastructure ....................................... 69

Program Administration ................................................................................................................................................................. 69

Financial Management ................................................................................................................................................................... 69

Information Systems ...................................................................................................................................................................... 69

Successes and Challenges ............................................................................................................................................. 70

Successes ...................................................................................................................................................................................... 70

Challenges .......................................................................................................................................................................................71

Pennsylvania Section 811 Project Rental Assistance Program  ....................................................... 73

Introduction ....................................................................................................................................................................... 73

Grantee Partnership, Organizational Structure, and Management ......................................................................... 73

Partnerships and Organizational Structure ................................................................................................................................... 73

Partnership Between PHFA and DHS ............................................................................................................................................74

State Context: Housing Programs ................................................................................................................................. 75

Housing ........................................................................................................................................................................................... 75

Service Provision and Healthcare .................................................................................................................................. 77

Policy and Funding: Prioritization of Medicaid Resources Toward Home- and Community-based Services .......................... 77

Existing Efforts ............................................................................................................................................................................... 78

Olmstead Plan and Settlements .................................................................................................................................................... 78

Population Served ............................................................................................................................................................ 79

Outreach, Referral, and Application .............................................................................................................................. 80

Housing Strategies ........................................................................................................................................................... 81

Property and Unit Characteristics  ................................................................................................................................................ 82

Property Selection Methods and Financing .................................................................................................................................. 82

Implementation Schedule  ............................................................................................................................................................. 82

Rent and Subsidy Levels ................................................................................................................................................................ 82

Unit and Tenant Turnover ............................................................................................................................................................... 83

Service Provision and Coordination .............................................................................................................................. 83

Service Models ............................................................................................................................................................................... 83

Coordination of Services and Housing ......................................................................................................................................... 83

Service Provision (Types, Transition Versus Ongoing, by Target Population, Gaps) .................................................................. 83

2013 811 PRA Application ................................................................................................................................................ 84

Leveraging ......................................................................................................................................................................... 84

Program Administration, Assessment, Information Systems, and Data Infrastructure ....................................... 84

PHFA Program Monitoring ............................................................................................................................................................. 84

DHS Program Monitoring ............................................................................................................................................................... 85

Successes  ......................................................................................................................................................................... 85

Strong Partnerships ....................................................................................................................................................................... 85

Leveraging Existing Programs ....................................................................................................................................................... 85

Challenges ......................................................................................................................................................................... 85

Securing One-Bedroom Units  ...................................................................................................................................................... 85

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Staff Turnover ................................................................................................................................................................................. 85

Breadth of Geographic Differences ............................................................................................................................................... 85

Shift in Housing Strategy ............................................................................................................................................................... 85

Washington Section 811 Project Rental Assistance Program  ......................................................... 87

Introduction ....................................................................................................................................................................... 87

Grantee Partnerships Organizational Structure, and Management ........................................................................ 87

Application Background  ................................................................................................................................................................ 87

Partnerships and Organizational Structure ................................................................................................................................... 87

Program Financial Structure  ......................................................................................................................................................... 88

State Context: Housing Programs ................................................................................................................................. 89

Housing Programs and Funding .................................................................................................................................................... 89

Existing Housing Programs That Serve People With Disabilities................................................................................................. 89

Additional Federal Housing Programs  ......................................................................................................................................... 91

How the 811 PRA Program Fits With Other State Housing Programs ......................................................................................... 91

Rental Housing Market ................................................................................................................................................................... 91

Service Provision and Healthcare .................................................................................................................................. 92

Current Status of Service and Healthcare Programs That Support Community Living ............................................................. 92

Washington’s Olmstead Plan ......................................................................................................................................................... 92

Local Issues: Homelessness ......................................................................................................................................................... 93

Population Served ............................................................................................................................................................ 93

Outreach, Referral, and Application .............................................................................................................................. 93

Participant Outreach and Referral Process .................................................................................................................................. 93

Participant Screening and Eligibility .............................................................................................................................................. 93

Referring 811 PRA Applicants to Available Units .......................................................................................................................... 94

Implications of Target Population and Outreach and Referral Methods ..................................................................................... 94

Housing Strategies ........................................................................................................................................................... 94

Property and Unit Characteristics  ................................................................................................................................................ 94

811 PRA Units at Channel Cove..................................................................................................................................................... 94

Property Selection Methods  ......................................................................................................................................................... 95

Implementation Schedule .............................................................................................................................................................. 96

Rent and Subsidy Levels ................................................................................................................................................................ 96

Unit and Tenant Turnover ............................................................................................................................................................... 96

Service Provision and Coordination .............................................................................................................................. 96

Transitional Services ...................................................................................................................................................................... 97

Gaps in Services ............................................................................................................................................................................ 97

2013 811 PRA Application ................................................................................................................................................ 97

Leveraging ......................................................................................................................................................................... 97

Program Administration, Assessment, Information Systems, and Data Infrastructure ....................................... 97

Successes and Challenges ............................................................................................................................................. 98

Program Successes and Replicable Innovations ......................................................................................................................... 98

Program Challenges ....................................................................................................................................................................... 98

References ......................................................................................................................................... 99

Additional Reading ........................................................................................................................... 101

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  ist of Tables

List of Tables

Table 1.1:  Program Design in the Case Study States  ............................................................................................................... 4

Table 1.2:  Housing Context in the Case Study States ............................................................................................................... 5

Table 1.3:   Services Context in the Case Study States ............................................................................................................... 7

Table 2.1:   Agency Roles in the 811 PRA Program .....................................................................................................................12

Table 2.2:  California—Planned and Actual Time Spent on 811 PRA Program by Key Staff ....................................................13

Table 2.3:  California—Overview of Major Federal Housing Programs .....................................................................................16

Table 2.4:  Characteristics of Properties With 811 PRA Units ................................................................................................... 20

Table 3.1:   Louisiana Federal Housing Programs ...................................................................................................................... 30

Table 3.2:  Properties Under RAC or Application in Process .................................................................................................... 34

Table 3.3:  Louisiana 1915(c) HCBS Waivers ............................................................................................................................. 35

Table 4.1:   Maryland 811 PRA Program Division of Responsibilities .........................................................................................41

Table 4.2:  Other Federal Housing Programs in Maryland ........................................................................................................ 44

Table 4.3:  1915(c) Waivers (Home- and Community-Based Services) ................................................................................... 45

Table 4.4:  Average Rents in Baltimore (2012 Versus 2015) ...................................................................................................... 49

Table 4.5:  Average Rents in Washington, D.C. (2012 Versus 2015) ......................................................................................... 49

Table 4.6:  Leveraged Housing Choice Vouchers .......................................................................................................................51

Table 5.1:   Minnesota—811 PRA Program Division of Responsibilities ................................................................................... 57

Table 5.2:  Minnesota—Other Federal Programs ...................................................................................................................... 60

Table 5.3:  Minnesota—Services Available to 811 Project Rental Assistance Participants .................................................... 62

Table 6.1:  Pennsylvania—811 PRA Program Roles and Responsibilities ................................................................................ 74

Table 6.2:  Pennsylvania—Responsibilities of Local Lead Agencies and Stakeholders........................................................... 81

Table 7.1:   Washington State—Agency Roles in the 811 PRA Program ................................................................................... 88

Table 7.2:   Washington State—Overview of Major Federal Housing Programs ...................................................................... 91

Table 7.3:   Washington State—Rental Housing Markets .......................................................................................................... 92

Table 7.4:   Washington State—Characteristics of Properties With 811 PRA Rental Assistance Contracts ........................... 95

List of Figures

Figure 5.1: Minnesota—Average Market Rents in Twin Cities (2010–2015) .............................................................................. 61

Figure 5.2: Minnesota—Rental Vacancy Rates in Twin Cities (2010–2015) .............................................................................. 61

Figure 5.3: Minnesota—811 Project Rental Assistance Outreach ............................................................................................ 63

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Executive Summary

Executive Summary

•  How are successful state and local partnerships 

structured to carry out the 811 PRA program?

•  How are outreach and marketing efforts designed 

to support fair housing objectives and compliance, 

provide tenant choice, and ensure efficient 

This report presents case studies of six states’ early 

occupancy policies for housing owners and 

experiences implementing the Section 811 Project Rental 

managers?

Assistance (811 PRA) program, a new approach to 

providing affordable rental housing for extremely low-

•  How is the 811 PRA integrated with and adapted to 

income people with disabilities. Beginning in 1991, the 

state housing and service delivery systems operating 

U.S. Department of Housing and Urban Development’s 

in varied political, fiscal, and housing market 

(HUD’s) Section 811 Supportive Housing for Persons with 

contexts?

Disabilities program began providing capital grants to 

•  What are the preliminary outcomes of the initial 

develop and operate affordable housing with available 

funding round?

supportive services—known as “supportive housing”—

The Phase I evaluation produced two major reports. 

designed to meet the needs of nonelderly people with 

This case study report presents detailed descriptions 

disabilities. The program was referred to as the Section 

of the early implementation experiences of six states 

811 Project Rental Assistance Contract (PRAC) program, 

funded in the initial funding round, with a focus on (1) 

for the project-based rental assistance contracts that 

the housing and services context in each state, (2) the 

provided the subsidy to make the housing affordable. 

partnerships developed to implement the 811 PRA 

Traditional y, Section 811 developments housed only 

program, and (3) the way in which the new program fits 

people with disabilities, mainly in group homes or small 

within these contexts. In addition, a process evaluation 

apartment buildings in community-based settings. 

report provides an aggregate summary of 811 PRA 

In recent years, interest has increased in developing 

implementation in all the states funded in the initial round 

broader housing options for people with disabilities. This 

of grants. 

broader set of housing options includes opportunities 

This case study report begins with a descriptive overview 

for affordable units in housing that is not exclusively for 

of the findings from the six states, fol owed by the six 

people with disabilities. The Section 811 PRA program 

case studies. 

was created in 2010 and provides funding directly to 

state housing finance agencies working in partnership 

with state human services and Medicaid agencies to 

test a different approach to the capital grants provided 

under the Section 811 PRAC program. Instead of building 

new housing specifical y for people with disabilities, the 

811 PRA program provides subsidies for scattered-site 

units in affordable housing developments (existing or 

newly built) that are financed by other public or private 

funding sources and occupied by a mix of people with 

and without disabilities. Section 811 PRA-assisted units 

are targeted to nonelderly people with disabilities who 

are eligible for Medicaid’s home- and community-based 

services or similar state-funded programs. 

In February 2013, 12 state housing agencies and their 

Medicaid agency partners received an inaugural round 

of 811 PRA grants totaling $88.3 mil ion to provide rental 

subsidies for approximately 3,350 housing units for 

nonelderly people with disabilities. HUD’s Office of Policy 

Development and Research subsequently commissioned 

the first phase of a multiphase evaluation focused on 

the initial round of 811 PRA grants. The evaluation’s 

overarching research questions are— 

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Chapter 1. Background of the Section 811 Project Rental Assistance Program

Background of the 

The Frank Melville Supportive Housing Investment Act 

of 2010 introduced a number of significant reforms to 

Section 811 Project 

the Section 811 program, including creating the PRA 

program. The new program provides project-based 

rental assistance for integrated supportive housing in 

Rental Assistance 

affordable housing developments with no more than 25 

percent of units set aside for people with disabilities. 

Program 

The Act retained language permitting capital advances 

for the development of group homes and other projects 

specifically for people with disabilities, but no funds 

were appropriated for these projects in fiscal years 

2012 through 2014.

This report presents case studies of six states’ 

The 811 PRA program provides rental assistance 

experiences implementing the Section 811 Project Rental 

funding to state housing finance agencies that wil  

Assistance (811 PRA) program, a new approach to 

work in partnership with state human services and 

providing affordable rental housing for extremely low-

Medicaid agencies to create community-based 

income, nonelderly people with disabilities. This report 

supportive housing. This approach responds to several 

is one of two produced by the Phase I evaluation, which 

policy priorities related to housing and support for 

is focused on the first round of 811 PRA grants, awarded 

people with disabilities. First, it responds to renewed 

to 12 states in February 2013. This chapter provides a 

emphasis on achieving the goals of the Supreme Court’s 

brief history of the Section 811 and 811 PRA programs, 

1999 decision in  Olmstead  v.  L.C.  to al ow people 

describes the objectives and data sources for the case 

with disabilities to live in the least restrictive settings 

studies presented here, and provides a descriptive 

possible that meet their needs and preferences. In 

overview of the key features of the 811 PRA programs in 

their decision, the Supreme Court ruled that, under 

the states selected for the case study research. The six 

Title II of the Americans with Disabilities Act, people 

case studies fol ow in chapters 2 through 7. 

with disabilities must be afforded opportunities to live 

in a setting appropriate to their abilities, with freedom 

The Section 811 and PRA Programs

to choose their daily life activities and to interact with 

people without disabilities. As states and communities 

Since 1991, HUD has administered the Section 811 

have worked to implement the decision (sometimes in 

Supportive Housing for Persons with Disabilities 

response to litigation), the limited supply of affordable 

program. The goal of the Section 811 program is to 

and appropriate housing and supports in community-

expand the supply of supportive housing for very 

based settings has been a significant challenge.

low-income people with disabilities. The program 

traditional y awarded interest-free capital advances and 

Second, the Olmstead decision encouraged state efforts 

contracts for project-based rental assistance to nonprofit 

to “rebalance” their Medicaid systems for providing 

organizations to develop supportive housing (such as 

long-term services and supports away from institutional 

group homes and smal  rental housing developments) 

settings such as nursing homes and toward housing 

occupied by very low-income households of nonelderly 

that is integrated within communities. Medicaid offers 

adults with disabilities.1

community-based services to its beneficiaries through its 

Home- and Community-Based Services (HCBS) program 

The Section 811 supportive housing model provides 

and other initiatives. These services help ensure that 

residents affordable housing and access to appropriate, 

people with disabilities have the services and supports 

voluntary supportive services. Organizations that receive 

they need to live successful y in the community. In 

capital advances must develop a Supportive Services 

particular, the Money Fol ows the Person (MFP) program, 

Plan that addresses how tenant’s health, mental health, 

administered by the Center for Medicare and Medicaid 

and other needs will be met. Grantees must either 

Services, is a major initiative that provides funding to 

provide services directly or partner and coordinate with 

many states to support transitions from institutions 

service providers in the community to provide services 

to community-based settings. The lack of affordable 

and must ensure that services are available for the 

housing has often constrained the program’s ability to 

duration of the 40-year capital advance period. 

move people to community settings.

1 

Nonelderly adults are defined as adults under age 62. Disabilities may include a physical or developmental disability or chronic mental illness.

1

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 1. Background of the Section 811 Project Rental Assistance Program

Final y, the Affordable Care Act created or strengthened 

•  What are the preliminary outcomes of the initial 

a number of programs to expand community-based care, 

funding round?

but, again, the lack of available affordable housing has 

This case study report presents detailed descriptions 

been a barrier to these efforts. 

of the early implementation experiences of 6 of the 

In order to apply for Section 811 PRA funds, state 

12 states funded in the inaugural funding round, with 

housing agencies must partner with the state agency 

a focus on the housing and services context in each 

responsible for the administration of the state’s Medicaid 

state, the partnerships developed to implement the 

program as well as the state health and human services 

811 PRA program, and how the new program fits 

agency (if different). A memorandum of agreement 

within these contexts. In addition, a process evaluation 

between the agencies, required as part of the grant 

report provides an aggregate summary of 811 PRA 

application, outlines the state Medicaid agency’s 

implementation in all 12 states. 

commitment to identifying and conducting outreach to 

The case study research explored the implementation 

the target population(s) to be served by the state’s 811 

of the Section 811 PRA program in six states that had 

PRA program and ensuring that residents are connected 

made the most progress toward leasing units by summer 

to appropriate supportive services. 

2015 when the evaluation’s design phase concluded. The 

Congress appropriated funds for the 811 PRA program 

research team also considered geographic distribution 

in fiscal years 2012, 2013, and 2014, with language that 

and program design features such as expected 

identifies the 2012 funding round as a demonstration 

partnership structures, target populations, and service 

round. HUD issued an initial Notice of Funding Availability 

funding mechanisms. The case study research focuses on 

(NOFA) for a demonstration round of 811 PRA grants 

the state context within which the 811 PRA is implemented 

in 2012. In February 2013, 13 states were selected to 

and addresses the following research questions. 

receive 811 PRA grants totaling $98 mil ion to provide 

•  What is the programmatic and fiscal context in which 

subsidies for an estimated 3,350 units. By early 2015, 

the Section 811 PRA program is implemented? 

12 grantees had executed cooperative agreements with 

HUD to implement the program under its first funding 

•  How does the Section 811 PRA program fit in the 

round to provide subsidies for an estimated 2,625 units. 

states’ existing long-term care systems and initiatives 

HUD awarded a second round of funding in March 2015 

to support community-based housing? 

under a combined NOFA for fiscal years 2013 and 2014. 

•  How does the 811 PRA program fit into a state’s 

Round 2 PRA funding was awarded to 25 state housing 

Olmstead plan or settlement agreement (if applicable) 

agencies for approximately $150 mil ion. 

or plan to end homelessness?

Evaluation of the Section 811 PRA 

•  How does the Section 811 PRA program model 

complement other state strategies and models to 

Program

house and provide services to very low-income, 

nonelderly adults with disabilities, and how do these 

This report is one of two major reports produced for an 

models vary by different populations? What have 

evaluation of the initial round of 811 PRA grants. HUD’s 

been the chal enges and successes of leasing up 

Office of Policy Development and Research issued a 

Section 811 PRA units, moving residents into units, 

contract to a research team from BCT Partners and Abt 

and providing services and supports?

Associates to carry out the evaluation. The evaluation’s 

overarching research questions are— 

•  What measures and research approaches could 

be used to assess the effectiveness of Section 811 

•  How are successful state and local partnerships 

PRA program compared with alternative supportive 

structured to carry out the 811 PRA program?

housing options for the target populations?

•  How are outreach and marketing efforts designed 

In consultation with HUD and its 811 PRA technical 

to support fair housing objectives and compliance, 

assistance providers, the research team selected the 

provide tenant choice, and ensure efficient 

fol owing six states for the case study research:

occupancy policies for housing owners and 

managers?

•  California

•  How is the 811 PRA program integrated with and 

•  Louisiana

adapted to state housing and service delivery 

•  Maryland

systems operating in varied political, fiscal, and 

housing market contexts?

•  Minnesota

2

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 1. Background of the Section 811 Project Rental Assistance Program

•  Pennsylvania

several agencies, as shown in table 1.1, because the 

•  Washington

housing and services functions necessary to carry out 

the 811 PRA program reside in multiple agencies. 

The research team reviewed grant applications, the 

cooperative agreements executed between HUD and 

Table 1.1 highlights the number of units and geographic 

the state partners in each state, grantee and partner 

scope of the 811 PRA program in each state at the time 

websites, and grantees’ quarterly performance 

of grant award (February 2013). The case studies discuss 

reports as submitted to HUD. The team also obtained 

in more detail how program partners worked together to 

administrative data from HUD’s data systems—the 

define the scope of the 811 PRA program, and their early 

Integrated Real Estate Management System (iREMS) 

experiences with the effort required to put the program 

for data on the characteristics of 811 PRA-assisted 

in place. 

properties and units; and the Tenant Rental Assistance 

Table 1.1 previews the extent to which the 811 PRA 

Certification System (TRACS) for the characteristics of 

built on or supplemented existing initiatives to provide 

811 PRA-assisted households. 

housing and services for nonelderly people with 

In October and November 2015, two-person research 

disabilities. As described in the case studies, in some 

teams from BCT Partners and Abt Associates conducted 

states the 811 PRA blended well with existing programs 

field visits to each of the six states to interview grantee 

while in others it differed from those programs and 

representatives and their partners. The teams spent an 

served to supplement them. The table provides an 

average of 4 days in each state. The teams conducted 

overview of the states’ approaches to 811 PRA program 

in-person interviews (with telephone followup as needed) 

targeting and to outreach and referral processes. Each 

using standardized semi-structured interview guides, 

case study provides additional details on how partners 

tailored to the state’s 811 PRA program design and 

reached these program design decisions and what their 

partners. The interview guides (as reviewed and approved 

experience had been with the processes as designed. 

by the Office of Management and Budget) are attached in 

Final y, table 1.1 notes the number of units under Rental 

appendices F, G, and H. Interview respondents included 

Assistance Contract (RAC) and the number of 811 PRA 

representatives of the state housing and Medicaid 

participants housed as of December 2015, based on 

agencies, referral agencies, service providers, and 

grantees’ quarterly reports. The case studies describe 

property managers. In states with occupied PRA units, 

the reasons behind the states’ modest production 

the teams had informal conversations with PRA-assisted 

numbers and review the states’ strategies to address the 

residents, when convenient. 

challenges they encountered.

A Descriptive Overview of the Six 

Housing Context

Case Study States 

The Section 811 PRA program seeks to expand access 

The following sections provide a brief, descriptive 

to affordable housing for people with disabilities by 

overview of the 811 PRA program in the six states 

providing subsidies for units in affordable housing 

included in the case study research. Full case studies for 

developments built with other funding sources. 

these six states are included in appendices. The text and 

Properties can be newly built or existing multifamily 

tables here first provide an overview of the states’ 811 

developments in which the development costs are 

PRA program designs. We then present a brief summary 

subsidized by federal sources such as Low-Income 

of the findings for the topic areas that were specific to the 

Housing Tax Credits (LIHTCs), HOME Investment 

case study research, such as the housing and services 

Partnerships Program funds, the Community 

context within each state; and how the 811 PRA fit within 

Development Block Grant (CDBG) program, or other 

that state context. The Process Evaluation Report will 

federal, state, or private sources. HUD also encouraged 

provide a descriptive overview of all 12 states funded in 

states to leverage additional affordable units for 811 

the fiscal year 2012 grant awards.

PRA participants through dedicated set-asides of public 

housing or housing choice vouchers.

811 Program Designs

Grantees determined their request for 811 PRA funds 

by calculating an expected average per-unit PRA rental 

HUD required at a minimum that applicants for 811 

assistance payment based on either the targeted income 

PRA funding develop a memorandum of understanding 

of the households living in PRA units (for example, 30 

between the state housing and Medicaid agency 

percent of Area Median Income [AMI]) or local Fair 

partners. In some states, the partnerships involved 

3

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 1. Background of the Section 811 Project Rental Assistance Program

Table 1.1: Program Design in the C ase S tudy S t ates 

Program Design

California

Louisiana

Maryland

Minnesota

Pennsylvania

Washington

California Housing 

Maryland Depart-

Finance Agency, 

ment of Housing 

Pennsylvania Housing  Washington Dept. 

California Tax Credit 

and Community 

Finance Agency, 

of Commerce, Dept. 

Allocation Commit-

Development, Dept. 

Louisiana Housing 

Minnesota Housing 

Department of 

of Social and Health 

tee, Department of 

of Health and Mental 

Corporation and 

Finance Agency; 

Human Services. 

Services. Housing 

Partners

Housing and Com-

Hygiene, Dept. of 

Dept. of Health and 

Department of 

Decentralized, 

Finance Agency and 

munity Development; 

Developmental Dis-

Hospitals. 

Human Services 

county-based system  State Health Care 

Dept. of Health Care 

abilities. Centers for 

served by local lead 

Authority (Medicaid) 

Services, Dept. 

Independent Living 

agencies.

play small roles.

of Developmental 

may provide case 

Services

management.

200 units 34 regions 

Number of 811 PRA 

200 units in central 

150 units in Balti-

95 units statewide 

(58 of 67 counties); 

units and geographic  335 units statewide

and northern Lou-

more and Washing-

with initial focus on 

275 units statewide

started with pilot in 

scope

isiana 

ton, D.C. metro areas Twin Cities

one county

Built on two previous 

Built on Bridges 

programs—Bridge 

Rental Assistance 

Subsidy Program—

Program as well 

Modeled PRA on 

Department of Social 

temporary tenant-

as Olmstead plan, 

existing Rental Sub-

and Health Services 

Built on PSH program  based rental subsi-

MFP, and Plan to 

Agencies had not 

sidy Fund program. 

had worked with 

developed in 2007 

dies for people with 

End Homelessness. 

worked together 

Pennsylvania Housing  housing authori-

Previous experience 

response to 2005 

disabilities until they 

Several existing 

previously. Each 

Finance Agency 

ties on vouchers 

with housing and 

hurricanes. State 

can obtain a Housing 

programs targeting 

had experience with 

uses developer 

for people with 

services for people 

hopes to use 811 

Choice Voucher; also 

homeless with 

housing with services 

fees to create units 

disabilities. Already 

with disabilities

PRA to expand 

Weinberg Apartments  severe mental illness 

but not for institu-

affordable at or 

had outreach/referral 

beyond coastal 

program targeting tax  (operating support 

tionalized population. 

below 20 percent of 

mechanisms for insti-

areas. 

credits for apartments  for PSH, income 

AMI for people with 

tution-to-community 

affordable to people 

supplements, crisis 

disabilities. 

transitions. 

with disabilities with 

financial assistance 

incomes at 15 to 30 

for people who are 

percent of AMI. 

homeless or at-risk.)

Waiver clients with 

Institutionalized or at  developmental 

Institutionalized or at 

Long-term homeless 

risk; in congregate 

disabilities, mental 

risk; focus on people 

Institutionalized or 

Inappropriately insti-

with severe mental 

setting and prefer 

illness or functional 

with developmental 

at risk; Medicaid 

811 PRA targeting

tutionalized or at risk; 

illness; MFP par-

community setting. 

disabilities; and MFP 

disabilities because 

recipients who are 

homeless or at risk 

ticipants exiting an 

Local lead agencies 

participants. Online 

of developmental 

homeless. 

institution. 

may have additional 

assessment tools for 

center closures.

targeting. 

determining eligibility 

and service needs.

Case managers 

Regional Tenant 

screen applicants, 

PATH and MFP 

Online assessment 

Referral Organiza-

enter info into a cen-

staff do outreach. 

tools for eligibility 

tions (one for MFP; 

Central outreach 

tral PRA system that 

Housing coordinator 

Local lead agencies 

and service needs. 

one for developmen-

through PSH program  also tracks available 

at Department of 

serve as single point 

Regional housing 

811 PRA referral 

tally disabled pop-

office. Waitlists by 

units. Department of 

Human Services 

of contact for service  specialist keeps 

process

ulation) administer 

parish; referrals 

Disabilities manages 

manages waitlist, 

providers, landlords, 

regional waiting lists, 

waitlists. Owners 

to units tracked by 

waitlist, which 

matches referrals 

applicant intake. 

makes referrals of 

partner with tenant 

parish. 

includes applicants 

to available units, 

eligible applicants to 

referral organizations 

for Weinberg and 

and ensures service 

available units. 

for referrals. 

Bridge Subsidy 

coordination. 

Programs. 

811 PRA implemen-

78 units under RAC; 

34 units under RAC; 

13 units under RAC; 

67 units under RAC, 

2 units under RAC, 1  32 units under RAC; 

tation status as of 

28 housed.

7 housed

4 housed

1 housed

housed

11 housed 

December 2015

AMI = Area Median Income. MFP =Money Follows the Person. PATH = Projects for Assistance in Transition from Homelessness. PRA = Project Rental Assistance. PSH = Permanent Supportive Housing. RAC = Rental Assistance Contract. 

4

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 1. Background of the Section 811 Project Rental Assistance Program

Market Rents (FMRs) for cities where PRA units are 

RAC provides funding for 5 years. The use restriction 

expected to be located. HUD encouraged applicants for 

and renewal funding are contingent on continued 

811 PRA funding to propose cost-effective use of grant 

Section 811 appropriations. To ensure that community 

funds by proposing rents lower than FMRs. Grantees 

integration goals are achieved under the 811 PRA 

were awarded points for proposing initial rents that are 

program, the Section 811 statute specifies that no more 

affordable to households with incomes between 20 and 

than 25 percent of the units in the affordable housing 

50 percent of AMI, with higher points corresponding to 

development can be set aside for supportive housing or 

lower percentages of AMI.

have an occupancy preference for people with disabilities.

Among the six case study states, four (California, 

The 811 PRA program is expected to supplement other 

Minnesota, Pennsylvania, and Washington) initial y 

housing programs for people with disabilities. The case 

targeted units at 50 percent of AMI. The remaining two 

studies provide the number of units funded through the 

states (Louisiana and Maryland) targeted units at FMR. 

common federal y funded affordable housing programs 

The estimated monthly rental assistance amount (as 

(public housing, housing choice vouchers, and other 

established in the cooperative agreement with HUD) 

HUD-assisted multifamily programs) in each state. Table 

ranged from $589 per unit in Washington to $1,235 per 

1.2 notes some of the other funding mechanisms the 

unit in Maryland. 

six case study states are using to provide supportive 

Property owners must commit to a 30-year use restriction 

housing for people with disabilities, including leveraged 

to provide a specified number of supportive housing 

public housing units and housing choice vouchers. 

units for nonelderly people with disabilities, and to 

Table 1.2 also identifies two key topic areas in which the 

a contract with HUD for at least 20 years. The initial 

case study states encountered chal enges. First, several 

Table 1.2 : Housing C ontex t in the C ase S tudy S t ates

Housing Context

California

Louisiana

Maryland

Minnesota

Pennsylvania

Washington

QAP points to projects 

No. Tax credit owners 

with 5–10 percent 

can apply for 811 

No, but eligible 

of units set aside for 

No, but QAP does 

No, but QAP incen-

No, but QAP incen-

PRA. QAP incentives 

QAP priorities for 

properties with Tax 

PSH-eligible people. 

favor projects afford-

tives for supportive 

tives for supportive 

are for special needs 

811 PRA

Credits can apply for  Starting in 2017, QAP  able at or below 60 

housing in general. 

housing in general. 

populations in gen-

811 PRA

points for 25 percent 

percent of AMI. 

eral, up to 75 percent 

of units set aside for 

set-asides. 

PRA program.

811 PRA leveraged 

Department of Com-

Bond-funded 

151 vouchers or 

merce manages five 

program with 

public housing units 

programs that provide 

priority points for 

from six housing 

housing for people 

811 PRA and two 

811 PRA leveraged 

authorities. State 

with disabilities 

other supportive 

60 vouchers through  Rental Subsidy Fund  (capital financing 

housing financing 

811 PRA leveraged 

two housing author-

serves broader target  and rental subsidies.) 

programs. One 

811 PRA leveraged 

97 housing choice 

ities. Bridges Rental 

population, but similar  State Housing Trust 

capital and operating  125 vouchers from 

vouchers. Depart-

Assistance Program 

approach to 811 PRA.  Fund supports 

funding program for 

three housing author- ment of Housing and 

(see previous 

Supportive housing 

affordable housing for 

Other supportive 

homeless/at risk 

ities. PSH and 811 

Community Devel-

section). Housing 

funded through 

people with special 

housing for people 

with severe mental 

PRA largely targeted 

opment operates a 

Trust Fund, Housing 

various homeless 

needs of all ages. 

with disabilities

illness. California 

to properties with tax  homeownership pro-

Infrastructure Bonds,  assistance programs.  Housing Finance 

Tax California Credit 

credits and HOME 

gram, bridge subsidy,  and Ending Long-

Nursing Home Tran-

Agency finances mul-

Allocation Committee  Investment Partner-

and rental housing 

term Homelessness 

sition serves some 

tifamily housing with 

has priority for 

ships Program. 

programs for people 

initiatives al  focus 

nonelderly, but pri-

incentives to develop 

projects serving 

with disabilities. 

on supportive 

marily elderly people.  supportive housing 

homeless and a 

housing for long-term  Medicaid managed 

for people with 

4-percent set-aside 

homeless. 

care contractors 

disabilities. Supportive 

for projects with 50 

using reinvestment 

housing through vari-

percent set-aside for 

dollars to develop 

ous federal homeless 

special needs. 

supportive housing. 

assistance programs.

(cont)

5

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 1. Background of the Section 811 Project Rental Assistance Program

Table 1.2 : Housing C ontex t in the C ase S tudy S t ates ( cont )

Housing Context

California

Louisiana

Maryland

Minnesota

Pennsylvania

Washington

Owner interest 

PRA rent projections 

reported to be key 

were based on 

challenge in first year 

“blended rent maxi-

Owner interest less 

Several state 

of 811 PRA. Owners 

mum” that assumes 

than expected. 

programs are incom-

unfamiliar with the 

an even distribution 

Shortage of prop-

patible with PRA 

Housing Finance 

program; wary of 

of units in Baltimore 

erties with available 

because of PRA’s 

Agency doing extra 

30-year use restric-

and Washington. 

one-bedroom units; 

25-percent cap 

outreach to owners, 

tion with only 5 years 

State had to provide 

Have been pretty 

some properties 

on units for people 

many of whom 

of rental subsidy. 

extra education and 

accurate so far. To 

already have more 

with disabilities in 

are wary. 30-year 

Some properties 

Owner interest in 

outreach to encour-

reassure owners, 

than 25 percent ten-

a single project. 

use restriction and 

incompatible because 

811 PRA

age owners in new 

MFP contributed $1m 

ants with disabilities. 

Owner outreach has 

20-year RAC with 

of 25-percent cap; 

(noncoastal) regions 

in rebalancing funds 

Owners deterred 

been challenging but 

only a 5-year PRA 

state’s targeted rent 

to apply for 811 PRA.  to be held in trust by 

because Penn-

viewed as necessary 

funding commitment 

levels for PRA units 

Department of Hous-

sylvania targeted 

and successful. State 

seems risky to many 

are low relative to 

ing and Community 

affordability at 50 

tried to streamline 

owners. 

high-cost markets. 

Development to fund 

percent of AMI and 

application process 

Department of Com-

housing subsidy for 

an average monthly 

for owners.

merce has stream-

up to 6 months if PRA 

rent level of $678. 

lined application 

funding is no longer 

and done additional 

funded by HUD. 

outreach to owners.

Difficult to develop 

and attract properties 

at state’s targeted 

Very expensive 

rent levels for PRA 

Washington’s targeted 

markets; lack of 

units. In population 

rent levels for 811 

state resources for 

Washington and Bal-

hubs with access to 

PRA units are per-

Relatively high rental 

affordable housing, 

timore rental markets  transportation and 

ceived to be low given 

vacancy rate in state, 

Housing market 

especially after 2008 

too hot to attract 

services, excluding 

high-cost markets 

but rents are still 

issues

crash/recession. 

owners at Maryland’s  those already at 

in Washington. Low 

escalating, even out-

Rent levels targeted 

targeted rent levels 

or above 25-per-

vacancy rates mean 

side New Orleans.

for PRA units are low 

for PRA units.

cent PRA limit for 

few units available for 

compared with other 

households with 

811 PRA occupancy 

subsidy programs.

disabilities. These 

in the near term.

properties are a 

small percent of the 

state’s portfolio.

AMI = Area Median Income. MFP =Money Follows the Person. PRA = Project Rental Assistance. PSH = Permanent Supportive Housing. QAP = Qualified Allocation Plan. RAC = Rental Assistance Contract. 

states found it challenging to engage property owners’ 

lack of one-bedroom apartments in some markets 

and developers’ interest in the new 811 PRA program. 

made it difficult to find appropriate units, given most 

The financing mechanism and administrative processes 

PRA participants are expected to be small households. 

for the new program were unfamiliar to developers. Some 

The 25-percent cap on units occupied by persons with 

were wary of the 30-year use restriction and 20-year 

disabilities was also an issue in some states where 

contract term with only 5 years of rental subsidy. Further, 

otherwise-eligible properties already had a larger 

the requirement that contract rents be capped at the 

proportion of units occupied by people with disabilities. 

area’s FMR, or at lower rent levels in some grants, was a 

Finding units at the states’ target rents for PRA units 

particular concern for developers and owners in costlier 

(as proposed in their funding applications and finalized 

urban areas. 

in their cooperative agreements with HUD) proved 

Second, a variety of housing supply and market 

chal enging in some markets with tight rental markets, 

conditions also influenced owner and developer interest 

subsidy programs with higher target rents, or both.

in the PRA program. Interview respondents noted a 

6

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 1. Background of the Section 811 Project Rental Assistance Program

Services Context

participants. All six states had waivers (usual y more than 

one) under Medicaid’s 1915(c) HCBS program. Some 

The 811 PRA program targets extremely low-income 

states also had resources through 1915(i) or 1115 

households with disabilities that are currently 

waivers, or through state-funded programs (KFF, 2011).2,3 

living in institutions, are homeless, or are at risk of 

Table 1.3 also notes whether and how states’ efforts 

institutionalization or homelessness. Participants in the 

around Olmstead settlements and plans to address 

811 PRA program must also be eligible for community–

homelessness informed 811 PRA implementation. 

based long-term care services provided under the state’s 

Medicaid program. Medicaid cannot pay for housing, 

Notably, Maryland and Washington have each used MFP 

but it can pay for medical, mental health, and other 

rebalancing efforts in ways that support the 811 PRA. To 

services and supports that people with disabilities need 

reassure owners interested in the 811 PRA, Maryland’s 

to maintain their health and, for 811 PRA participants, 

MFP program contributed $1 mil ion in rebalancing funds 

live stably in a community-based setting. Long-term 

to be held in trust by the state housing agency. The funds 

care services may be provided under Medicaid waivers, 

will be used to fund housing subsidy payments for 811 

Medicaid state plan options, or other comparable 

PRA participants for up to 6 months if HUD PRA funding 

programs that fund long-term services. 

is interrupted or discontinued. In Washington, MFP 

rebalancing funds were al ocated to create a temporary 

Table 1.3 summarizes the funding sources the six case 

rental subsidy program for people transitioning from 

study states had available for services for 811 PRA 

institutions to the community. People reaching the end of 

Table 1.3 : Ser vices C ontex t in the C ase S tudy S t ates

Services Context

California

Louisiana

Maryland

Minnesota

Pennsylvania

Washington

1915c for Housing 

Stabilization and 

Waivers—Community  1915c waivers for 

Housing Transition or 

1915c waivers for 

Two 1915(c) waivers 

Nine 1915c waiver 

Pathways (develop-

developmental dis-

Medicaid waiver 

Crisis Intervention; 

intellectual disabilities  for people with 

programs; two 

mental disabilities); 

abilities, brain injury 

programs expected 

four 1915c waivers 

supports and ser-

functional disabilities; 

specifically for people 

Brain Injury; Medical 

1915(i) for mental 

to serve 811 PRA 

for adults (two for 

vices; Adult Autism 

five HCBS waivers 

with developmental 

Day Care; Home and 

health population; 

participants

people with develop-

Waiver; and HCBS for  for developmental 

disabilities. 

Community Based 

proposed tenancy 

mental disabilities, 

physical disabilities.

disabilities. 

Options. 

supports. 

two for physical 

disabilities).

MFP plus state-

funded supplement to 

MFP. Under state 

MFP program. Medic-

plan, Community First 

aid rebalancing funds 

MFP. Three state-

MFP. Health Homes 

1915i SPA for 

Choice to consolidate 

1915i (managed 

allocated to create 

funded services 

Other Medicaid or 

starting in 2017. 1115  behavioral health 

three previous waiv-

care), MFP, Nursing 

temporary rental 

programs for mental 

state programs for 

renewal proposed 

includes services or 

ers for adults with 

Home Transition, 

subsidy program for 

health (two) and 

811 PRA participants

to have tenancy 

skill building to get or  disabilities; Balancing 

state block grants to 

people transitioning 

homeless (one) 

supports services.

keep housing. 

Incentive Program to 

counties

from institution to 

populations. 

supplement MFP and 

community. Under 

augment HCBS.

state plan—Com-

munity First Choice, 

private duty nursing.

(cont)

2 

States can offer a variety of services under a State Plan HCBS benefit. Section 1915(i) of the Social Security Act provides federal guidelines under which states can develop HCBS benefits to meet the specific needs of target population(s). Section 1115 of the Social Security Act gives the Secretary of Health and Human Services authority to waive provisions of major health and welfare programs authorized under the act, including certain Medicaid requirements, and to enable states to use federal Medicaid funds in ways that are not otherwise allowed by federal rules.  

3  For descriptions of these programs and other Medicaid waivers, see https://www.medicaid.gov/Medicaid-CHIP-Program-Information/By-Topics/

Waivers/Waivers.html or http://www.nhpf.org/uploads/Handouts/HCBStable_FS_09-27-13.pdf.

7

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 1. Background of the Section 811 Project Rental Assistance Program

Table 1.3 : Ser vices C ontex t in the C ase S tudy S t ates ( cont )

Services Context

California

Louisiana

Maryland

Minnesota

Pennsylvania

Washington

Rebalancing efforts 

predate Olmstead 

Olmstead plan (2011)  (early 1990s). Olm-

No Olmstead 

Have Olmstead 

focused on mental 

stead plan (2005). 

settlements or plans,  plan and Plan to 

health population—

Greater focus on 

State has a Ten-Year  but a statewide 

No Olmstead consent 

End Homelessness. 

diversion/transition 

homelessness than 

Plan to End Home-

commission works 

decrees, but lawsuits 

Olmstead case set-

from state hospitals. 

on people with 

State Olmstead or 

lessness and a class 

on community 

against City of Los 

tlement plan (2015) 

Three settlement 

disabilities more 

homeless plans

action lawsuit under 

integration. Baltimore 

Angeles. Olmstead 

increases number 

agreements (two 

broadly. 10-Year Plan 

Olmstead (Barthe-

settlement requires 

plan (2003). 

served in commu-

psychiatric hospital 

To End Homeless-

lemy).

city to provide 

nity settings by 92 

populations; one 

ness (2006–2015) 

vouchers to people 

percent.

developmental dis-

set aggressive tar-

with disabilities.

abilities population) 

gets. Some progress, 

but not as much as 

hoped. 

HCBS = home- and community-based services. MFP = Money Follows the Person. PRA = Project Rental Assistance.

the 24-month limit on the temporary subsidy are among 

populations. These populations were not targeted in 

those who may be served in the 811 PRA program. The 

the state’s initial 811 PRA grant, but are the focus of 

case studies describe the details of these rebalancing 

their second-round grant.

initiatives and other innovative approaches. 

•  Louisiana’s 811 PRA program builds on the state’s 

How Does the Section 811 PRA Model 

existing Permanent Supportive Housing (PSH) 

program, an initiative to provide affordable supportive 

Fit? 

housing to people with special needs in the wake 

of the 2005 hurricanes in New Orleans and the 

The Section 811 PRA program is a new approach to 

surrounding coastal region. Although the state has a 

providing affordable supportive housing for nonelderly 

number of housing and services resources to support 

people with disabilities; the initial funding round was 

the 811 PRA program, the state’s goal of expanding 

considered a demonstration that would inform efforts to 

the geographic reach of the PSH program to other 

refine the model in future funding rounds. A key question 

parts of the state has been chal enging due to low 

for the case study research was how 811 PRA model 

program rents and owners who are unfamiliar with the 

would “fit” in the context of other federal- and state-

program and the population.

supported affordable housing efforts for this population. 

•  Maryland’s 811 PRA builds on wel -established 

The six case study states provide a range of 

partnerships and programs, and the state’s waiver 

experiences with integrating 811 PRA in their housing 

programs are wel -aligned with the 811 PRA target 

and services contexts.

populations. The state has established a centralized 

•  California’s 811 PRA addresses important housing 

and integrated online system (using the SocialServ 

needs but supplements the other efforts rather than 

platform) for applications and referrals and for 

integrating with them. The 811 PRA’s 25-percent 

monitoring unit availability. The system combines 

limit on the proportion of units occupied by people 

applicants for the 811 PRA program with those for 

with disabilities makes it incompatible with several 

two other state programs serving similar populations. 

other state programs serving similar populations.4 

Although efficient, the combined system may make 

Further, in general, California’s current policy 

it difficult to distinguish 811 PRA outcomes from the 

priorities focus on homeless and mental health 

other programs tracked in the same system. 

4 

The section titled How the 811 PRA Program Fits With Other State Programs of this report details how the 25-percent cap on targeted units within the 811 PRA program makes the program incompatible with other existing housing efforts serving similar populations.

8

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Cha

pter 1. Background of the Section 811 Project Rental Assistance Program

•  Minnesota is building on an extensive history of 

collaboration between the state’s housing and 

Medicaid agencies. Minnesota’s proposed 811 PRA 

rents are lower than rents in other state affordable 

housing programs, but the grantee circumvented 

that challenge by identifying units within the existing 

portfolio with rents limited to 50 percent AMI, which is 

below average rents in the metro area. However, the 

811 PRA program’s 25-percent limit on the proportion 

of units al ocated to people with disabilities is viewed 

as a barrier because many properties would exceed 

this limit if they participated in the program.

•  Pennsylvania proposed a 200-unit 811 PRA program 

that would operate nearly statewide, using a 

decentralized, county-based approach. It would build 

on an existing state program that provided incentives 

to developers to build housing for extremely low-

income people with disabilities. At the time of the 

field visit in fall 2015, a pilot effort in one county was 

just getting under way. It was too early to tell how 

the 811 PRA would fit in the housing and services 

context in Pennsylvania.

•  Washington’s 811 PRA program supplements and fil s 

gaps in existing state programs. It specifical y targets 

nonelderly people with disabilities in institutions 

or at risk of institutionalization, a population not 

otherwise targeted by state programs. It provides 

assistance in integrated settings, unlike other state 

housing programs where up to 75 percent of units 

may be occupied by people with special needs. 

Final y, the 811 PRA provides long-term subsidies, 

positioning it as a next step for people with disabilities 

who participate in Washington’s two short-term (2 

years) rental subsidy programs that serve people 

with disabilities. However, owner interest has been 

limited so far, primarily due to concerns about low 

rents in high-cost areas with strong rental markets. 

Although the grantee selected the maximum rent level 

it could set for the funding application, it happens to 

have the lowest level of rent for all six case studies. 

Washington eventual y requested and received from 

HUD a waiver al owing units to rent at FMR or 50 

percent AMI, whichever is higher.

9

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

10

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

California Section 

Established in 1975, CalHFA initial y provided 

administration for project-based Section 8 housing in 

811 Project Rental 

California. The agency’s role later expanded to become 

the state’s affordable mortgage lender by making low-

interest loans through the sale of tax-exempt bonds. 

Assistance Program

CalHFA also provides downpayment assistance for low- 

to moderate-income homebuyers; provides financing 

in the form of low-interest loans for the preservation, 

acquisition, and rehabilitation of affordable housing; 

and administers the 811 PRA program. CalHFA is a 

Introduction

self-supporting state agency, supported by revenues 

generated through mortgage loans, not taxpayer dollars. 

HUD awarded the California Housing Finance Agency 

CalHFA’s ongoing program responsibilities are 

(CalHFA) with $12,208,558 in Section 811 Project 

developing, executing, and administering the RACs with 

Rental Assistance program funding in the 2012 funding 

owners, including procuring the 811 PRA funds from 

round. CalHFA partners with four other state agencies 

HUD; ensuring payments are made to owners; and 

to administer the program. The 811 PRA funding will 

reviewing tenant data submitted to HUD. Agency staff 

support rental subsidies for up to 241 units of affordable 

review owner applications for rental assistance funding 

housing for extremely low-income persons with 

under the 811 PRA program. CalHFA asset management 

disabilities. Individuals eligible for 811 PRA subsidies 

staff are also responsible for monitoring ongoing 

are persons who are eligible for Medicaid, between the 

compliance of owners through annual occupancy reviews 

ages of 18 and 61 at the time of initial occupancy, and 

and unit inspections. As the grantee, CalHFA monitors 

either reside in long-term institutional care settings and 

the performance of its partners and submits quarterly 

wish to return to community living or are at risk of being 

reports to HUD. 

institutionalized. Owners of state-funded affordable 

The HCD provides funding for the development and 

housing developments partner with local service 

rehabilitation of affordable housing through multiple state 

providers to apply for 811 PRA funding and ensure 

and Federal funding programs. HCD administers the 

residents are connected to the health and supportive 

state’s CDBG, HOME, and Emergency Solutions Grants 

services they need. 

programs. HCD staff played a large role in developing the 

Evaluators conducted a site visit in November 2015 

initial 811 PRA program and the 2012 and 2013 funding 

to learn how the five agencies were implementing the 

applications. HCD staff also developed the NOFA for 

811 PRA program. At the time of the visit, CalHFA had 

property owners and the funding application review 

awarded rental assistance of $2,707,916 to the property 

process. Along with DHCS staff, HCD has performed 

owners of four different developments for a total of 78 

much of the marketing and outreach to property owners 

811 PRA units. Of the 12 811 PRA grantees who received 

to solicit 811 PRA program interest. 

2012 funding awards, California was the first state to 

The TCAC administers federal and state LIHTC 

have occupied 811 PRA units; at the time of the site visit, 

programs. Although the 811 PRA program is not a priority 

19 residents were living in 811 PRA units.

under the state’s Qualified Al ocation Plan (QAP) for tax 

Grantee Partnership, Organizational 

credits, eligible properties awarded tax credits can apply 

for rental assistance under the 811 PRA program. All 811 

Structure, and Management 

PRA units under contract to date are in LIHTC-funded 

CalHFA partnered with the California Department of 

properties. TCAC staff contributed to 811 PRA program 

Health Care Services (DHCS) (a department within 

development and its application and currently helps 

the California Health and Human Services [CHHS] 

review owner applications. Committee staff also monitor 

Agency), the California Department of Housing and 

TCAC-funded properties for tax credit compliance.

Community Development (HCD), and the California 

The DHCS and the DDS are departments under the 

Tax Credit Al ocation Committee (TCAC) to apply for 

13-department CHHS Agency. CHHS provides a broad 

811 PRA program funding. Together, with the California 

range of health, mental health, and social services to 

Department of Developmental Services (DDS), which 

state residents. DHCS operates Medi-Cal, California’s 

became a partner after grant award, these five agencies 

Medicaid program, and oversees the California 

jointly administer the program and meet biweekly to 

Community Transitions (CCT) Project, the state’s MFP 

coordinate and resolve program issues. 

Rebalancing Demonstration for persons with disabilities 

11

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

exiting from institutions. DDS provides administrative 

Background Leading to the 2012 811 PRA 

oversight to 21 statewide, nonprofit organizations 

Application

cal ed regional centers. These regional centers operate 

Due to the economic recession in the 2000s, California 

California’s Medicaid waivers and state plan services for 

experienced a budget crisis between 2008 and 

individuals with developmental disabilities. Additionally, 

2012, leading to billions in budget cuts in most state 

regional centers operate the CCT project for individuals 

government sectors. HUD’s NOFA for the 811 PRA 

with developmental disabilities.

program offered an opportunity for California to apply 

DDS and DHCS staff oversee the organizations that 

for rental subsidies for the target population during a 

identify 811 PRA participants and coordinate their 

period when affordable housing subsidies of any kind 

services. Along with HCD staff, housing program staff 

were very limited. 

from DDS and DHCS market the program to developers 

The State Department of Rehabilitation asked HCD to 

and owners. DHCS provides tenant data for the HUD 

consider applying for 811 PRA funds. In considering 

quarterly report. DHCS staff also helped to develop the 

the HUD NOFA, HCD approached CalHFA because 

811 PRA application. (DDS did not become a partner in 

it had experience with rental subsidies gained by 

the program until after the 811 PRA funds were awarded.) 

administering the Section 8 program. CalHFA partnered 

Table 2.1 outlines the organizational roles played by each 

with DHCS as the state’s Medicaid agency. HCD, 

organization in the 811 PRA program administration.

CalHFA, DHCS, and TCAC staff met frequently to 

develop the initial program and funding application. The 

application was submitted in August 2012, followed by 

the award announcement in February 2013. 

Table 2.1: Agency Roles in the 811 P R A Program

CalHFA

HCD

TCAC

DHCS

DDS

•  Perform 811 PRA program 

•  Perform 811 PRA program 

•  Perform 811 PRA program 

•  Perform 811 PRA program 

•  Market 811 PRA program 

planning.

planning.

planning.

planning.

to owners.

•  Provide owner Notice 

•  Provide owner Notice 

• 

• 

Market 811 PRA program 

Review owner applications.

of Funding Availability 

of Funding Availability 

•  Review owner applications.

to owners.

development.

development.

•  Conduct outreach and 

training to prospective 

•  Administer Rental 

• 

California Community 

Market 811 PRA program 

Assistance Contract and 

•  Review owner applications.

•  Review owner applications.

Transitions providers 

to owners.

subsidy payments.

interested in becoming 

a HUD 811 PRA tenant 

referral organization.

•  Oversee referrals in 

•  Process monthly tenant files 

• 

• 

• 

Inspect and monitor TCAC-

Oversee referrals in nursing 

institutional settings and 

Review owner applications.

and voucher.

funded 811 PRA properties

facilities.

individuals who are “at risk” 

of institutionalization.

•  Inspect and monitor 811 

•  Monitor HCD-funded 811 

•  Oversee coordination of 

•  Oversee coordination of 

PRA program properties.

PRA properties..

services.

services.

•  Produce quarterly reporting 

•  Produce HUD quarterly 

•  Track referrals.

for HUD.

reporting.

•  Verify both Regional 

Center consumers and 

Money Fol ows the Person 

participants for age and 

Medicaid eligibility.

CalHFA = California Housing Finance Agency. DDS = California Department of Developmental Services. DHCS = California Department of Health Care Services. 

HCD = California Department of Housing and Community Development. PRA = Project Rental Assistance. TCAC = California Tax Credit Al ocation Committee.

12

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

HUD signed the Cooperative Agreement with CalHFA 

key staff report that they vastly underestimated the staff 

on October 30, 2014. DDS did not become a program 

time needed to implement and administer the program. 

partner until after the 811 PRA funds were awarded.

In addition, DDS planned to hire one new housing 

The partners expected that 811 PRA units would be 

position in 2016 that will help support the 811 PRA 

located statewide in both properties already built 

program going forward. 

with state affordable housing funds—and therefore 

Table 2.2 is a comparison of anticipated staff time for 

with existing affordability requirements—and in newly 

four key 811 PRA staff against an approximation of 

constructed or rehabilitated properties. CalHFA applied 

staff time spent on the 811 PRA program during its first 

for the maximum 811 PRA funding amount due to the 

year of the grant. As shown, the four agencies staff 

need for supportive, integrated housing, and the lack of 

members spent significantly more time on 811 PRA 

affordable housing funding at that time.

program administration than planned, an increase of 

more than one FTE. 

Program Financial Structure 

The 811 PRA program is supported by $931,814 811 

State Context: Housing Programs

PRA administrative grant fees and in-kind contributions 

of staff time. Because CalHFA is the grantee and wil  

Housing

manage the ongoing rental subsidy for a 20-year period, 

California has an overwhelming need for affordable 

the partners agreed that the agency should receive the 

and suitable housing for people with disabilities. The 

full administrative fee. Staff from the partner agencies 

2013 American Community Survey estimated 3.7 

provide their time working on the 811 PRA program as 

million people with disabilities live in California and 

in-kind contributions. 

2.4 percent of state residents receive Social Security 

All 811 PRA functions at CalHFA, HCD, TCAC, and DDS 

Disability Insurance payments (Census Bureau, 

are performed by existing staff. DHCS hired a new ful -

2013). In 2014, the average Social Security Disability 

time Housing Specialist through the MFP program who 

Insurance payment in California was $877, requiring 

took on 811 PRA functions after 2012 811 PRA funding 

those whose sole income is Social Security Disability 

was announced. The staff burden estimate from the 2012 

Insurance to spend more than their entire income 

grant application was 3.25 ful -time equivalents (FTEs) 

to rent even a studio apartment (Social Security 

across four agencies (not including DDS), although al  

Administration, 2014a). 

Table 2.2 : C alifornia — Planned and Actual Time Spent on 811 P R A Program by Key S t af f

Agency and Key Staff Members

Planned FTEs

Actual FTEs (estimated)

CalHFA—asset management officer and specialist

0.10

0.60–0.80

DHCS—Housing specialist

0.50a

0.85

HCD—specialist, Division of Financial Assistance 

0.20

0.50–0.75

Planning and Evaluation Unit

TCAC—specialist, Development Section

0.20

0.20

DDS—section chief Community Development and 

0.00b 

0.30

Housing, specialist 

Combined total

1.00

2.45–2.90

CalHFA = California Housing Finance Agency. DDS = California Department of Developmental Services. DHCS = California Department of Health Care Services. FTE = full-time equivalent. HCD = California Department of Housing and Community Development. PRA = Project Rental Assistance. TCAC = 

California Tax Credit Allocation Committee. 

a The FTE expectation for the DHCS housing specialist was 1.00 FTE in the 2012 grant application. The expectation for 0.5 FTE on the 811 PRA program was determined after the grant was funded and the position was filled. The housing specialist position was hired to work on all housing-related activities for the MFP program. 

b DDS was not a partner to the application.

13

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

California has long committed to create housing 

•  The state bond-funded Multifamily Housing Program 

opportunities tied to services, but state agencies have 

(MHP) General Component provides financing for 

not historically created many resources specifically 

the construction, rehabilitation, or preservation of 

for persons with disabilities coming from institutions. 

rental housing for low-income households. In 2015, 

Some staff expressed the opinion that this population 

HCD made available $47.5 mil ion in MHP funds and 

with disabilities is competing with other populations 

included priority points for properties that include at 

in need to receive state funds. For example, 

least five 811 PRA units in their funding application. 

homelessness is a significant concern statewide. 

As a result, six applications for the MHP General 

The 2015 Point-in-Time estimate for homelessness 

Component requested funding for 811 PRA units. HCD 

in California was about 115,000 with only an 

awarded MHP funds to three properties for a total of 

approximate one-third of those sheltered (HUD, 2015). 

15 811 PRA units. 

According to program staff, people with disabilities 

•  The MHP Supportive Housing Component provides 

that are institutionalized are not as visible compared 

financing for supportive housing developments. Units 

with people seen living on the street and represent a 

funded by MHP Supportive Housing are required 

“silent housing crisis.” 

to be occupied by people with disabilities in one or 

By providing rental subsidies, the 811 PRA program fil s 

more of five specific disability categories. As of 2015, 

a need for affordable housing specifical y for nonelderly 

87 properties were under this program with 2,355 

persons with disabilities. HCD and TCAC are purposively 

supportive housing units. 

policy neutral toward people with disabilities in their 

•  The Affordable Housing and Sustainable 

funding awards because they strive to serve all low-

Communities Funds is a new state program that 

income populations in California. 

funds land-use, housing, and transportation projects 

Existing Programs 

that reduce greenhouse gas emissions. Currently, 

Affordable Housing and Sustainable Communities 

Although most of California’s housing programs may 

is the largest HCD capital development program. 

not establish specific priorities, or set-asides for the 811 

The first awards were granted in 2015. No priority 

PRA target populations, the three state housing agencies 

points for special needs projects exist, although it is 

all administer various housing programs for low- and 

reasonable to assume that some projects will serve 

moderate-income Californians, many of which serve and 

special needs populations. In 2016, approximately 

house persons with disabilities. 

$400 million will be available through this program.

CalHFA programs. CalHFA provides financing for 

•  The Veterans Housing and Homeless Prevention 

affordable multifamily rental housing and makes low-

Program provides both capital and Operating Subsidy 

interest loans for very low- and low-income households. 

Program funding for affordable housing that serves 

Although no specific set-asides are in these programs for 

veterans, many of whom have disabilities. The 

persons with disabilities, it is likely that many people with 

program was funded at $75 mil ion in 2015, with $400 

disabilities reside in housing funded in part by CalHFA 

mil ion set aside for future years. 

and benefit from its programs. (CalHFA does not track 

this information.)

HCD also administers Federal funding to cities, counties, 

and nonprofit organizations from the CDBG, Emergency 

CalHFA does finance one program specifical y for people 

Solutions Grants, and HOME programs. Many people 

with mental il ness. Administered in conjunction with 

with disabilities are ultimately served by these programs. 

the California Department of Mental Health, the Mental 

In 2016, HCD was expected to receive an al ocation of 

Health Services Act Housing Program provides both 

funds from the National Housing Trust Fund program, 

capital financing and operational subsidies for PSH for 

a HUD-administered, formula grant capital funding 

individuals with severe mental il ness who are homeless 

program that requires 75 percent of the units created to 

or at risk of becoming homeless. Enacted in 2004, the 

house extremely low-income households at or below 30 

Mental Health Services Act is funded through a 1-percent 

percent of AMI. 

tax on income more than $1 mil ion. In fiscal year 

2014–2015, CalHFA lent $33 mil ion under this program 

TCAC programs. TCAC awards 9 percent competitive 

and created 227 units of supportive housing. 

and 4 percent noncompetitive federal LIHTC, as well 

as supplemental state tax credits. Applications for 

HCD programs.  HCD administers several state-funded 

the 9-percent tax credits are highly competitive, and 

housing programs that serve people with disabilities. 

in recent years TCAC has awarded only LIHTCs to 

less than one-half of applications received. In 2014, 

14

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

TCAC awarded $92 million in 9-percent tax credits 

Like the Veterans Housing and Homelessness 

and $97 million in supplemental state credits for 

Prevention Program, the MHP Supportive Housing 

the development, rehabilitation, or acquisition of 

Component Program provides incentives for setting 

affordable housing.

aside more of its units to serve persons with disabilities, 

TCAC’s QAP does not provide a preference, set-aside, 

including people who are chronical y homeless and 

or priority points specifically for 811 PRA projects. The 

other homeless populations with disabilities and special 

QAP does include a 10-percent set-aside for projects 

needs populations. Consequently, the percentage of 

serving homeless persons and a 4-percent set-aside 

units restricted to persons with disabilities in these 

for projects serving at least 50 percent special needs 

programs is typical y more than 25 percent, making it 

populations, including many people with disabilities. 

impossible for developers to be competitive for these 

Between 2012 and 2014, approximately 12 to 14 

capital sources if they were to choose to use 811 PRA 

percent of all tax credit awards were special needs 

funding in these properties. 

awards, resulting in at least 1,000 units constructed 

How the state defines its homeless population creates 

or rehabilitated specifically for people with disabilities 

additional incompatibilities between the 811 PRA 

of all ages. (TCAC does not track whether people with 

program and state programs that serve homeless 

disabilities are elderly or nonelderly.)

people. TCAC and HCD use HUD’s definition of homeless 

individuals, which means that individuals who are 

How the 811 PRA Program Fits With Other 

institutionalized for more than 90 days are no longer 

State Programs

considered homeless. Their use of this definition makes 

Several state housing programs are incompatible with 

it difficult to serve Money Fol ows the Person participants 

the 811 PRA program, the most significant barrier 

who must reside in institutional settings for at least 90 

the 25-percent cap on targeted units within the 811 

days to be eligible for the MFP program. 

PRA program. To ensure that 811 PRA tenants are 

integrated into communities, statutory language 

How Major Housing Assistance Programs 

governing the 811 PRA program stipulates that no more 

Are Used To Assist the Target Population

than 25 percent of units in any development may be 

In addition to the three state housing agencies, other 

required to serve or have occupancy preferences for 

entities such as local governments, housing authorities, 

persons with disabilities. Although federal and state 

and private owners also develop and administer 

tax credits issued by TCAC are the most prevalent 

affordable housing programs in California for people with 

financing source used to develop 811 PRA units, only 

disabilities. Table 2.3 overviews the number of persons 

those projects that do not apply for tax credits under 

served by six major Federal y funded housing programs 

the special needs or homeless set-asides can qualify 

administered in California. As shown, one-fourth of 

for the 811 PRA program because the set-asides 

people living in public housing in the state are nonelderly 

require that a minimum of 50 percent of the units 

people with a disability, as are 37 percent of Housing 

serve the target population5, which clearly exceeds the 

Choice Voucher (HCV) program participants.

25-percent 811 PRA maximum. 

In addition to the programs in table 2.3, 30 local public 

Mental Health Services Act funds already are dedicated 

housing authorities throughout California administer 

to serving people with mental il ness and therefore 

2,795 federal y funded vouchers specifical y for the Non-

cannot be used on the same unit as 811 PRA funds. For 

Elderly Disabled (NED) Vouchers. An additional 232,826 

HCD’s Veterans Housing and Homelessness Prevention 

units funded with federal LIHTCs are estimated to serve 

Program, properties are required to have more than 25 

people with disabilities (HUD, n.d.).

percent of their units set aside specifical y for veterans. 

CalHFA received guidance from HUD that the 811 PRA 

Local Issues—Housing Affordability and the 

program cannot require that 811 PRA units in a particular 

Rental Market

project serve only veterans. This guidance makes the 

California includes some of the most high-cost areas in 

use of 811 PRA rental assistance also incompatible with 

the country for renting, homeownership, and development, 

capital funding for projects serving only veterans. 

which is a key deterrent to creating affordable housing 

5 

It appears that by requiring at least 50 percent of the units be targeted to the special needs or homeless population, California TCAC’s special needs or homeless set-asides are supporting the production of congregate supportive housing (also referred to as single-site supportive housing), a model that has been targeted to persons with substance abuse who may have experienced homelessness or have been diagnosed with a mental illness. Congregate models have been successful at stabilizing housing and improving recovery because the services are available onsite and there is a supportive peer environment that is more intensive than in a scattered-site model, which is the approach of the 811 PRA program.

15

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

Table 2.3 : C alifornia — Over view of Major Federal Housing Programs

Percent With 

Number of Household 

Percent Extremely 

Disabilities Among 

Percent of All Persons 

Program

Units Available

Members

Low-Income

Head, Spouse Aged <62

With Disabilities

Public Housing

29,895

78,574

71

23

15

Housing Choice 

330,837

710,630

75

37

27

Vouchers

Moderate Rehabilitation

1,955

3,836

92

54

52

Project-Based Section 8

101,741

166,733

83

22

11

202/PRAC

13,359

15,852

83

38

4

811/PRAC

2,511

2,893

86

99

87

PRAC = Project Rental Assistance Contract. 

Source: HUD (2016)

opportunities for people with disabilities. Lack of 

811 PRA housing staff report that four to six sources 

affordable housing is one of the primary reasons 

of private and public funding are typical y needed to 

that people with disabilities may be at risk for 

make an affordable housing project feasible in high-cost 

institutionalization in the state. 

areas. The approximate construction cost of a new two-

Low-income residents have an especially difficult time 

bedroom unit is between $325,000 and $375,000. 

finding affordable housing in the state. According 

to a recent study of housing needs by the California 

Service Provision and Healthcare

Legislative Analyst’s Office, the median monthly rent 

Current Status of Service and Healthcare 

in California in 2013 was $1,240, more than 50 percent 

Programs That Support Community Living

higher than the national average (LAO, 2015). According 

to 2007–2011 American Community Survey data, 24 

The departments under CHHS administer Medi-Cal waiver 

percent of renter households in the state are extremely 

programs that provide home- and community-based 

low-income (earning 30 percent or less of AMI). More 

services. These programs include HCBS waivers that support 

than 80 percent of these households paid more than 30 

participants in their home or community-based setting as an 

percent of their income on rent and experienced housing 

alternative to care in a nursing facility or institution. 

problems such as overcrowding or substandard housing.

DHCS administers nine HCBS waivers, including the 

Owners comprise more than one-half of all occupied 

following waivers for people with disabilities.

units, 53.7 percent, compared with 46.3 percent 

•  Home- and Community-Based Services Waiver for 

of renters. Between 2010 and 2014, the proportion 

the Developmental y Disabled. This waiver authorizes 

of California owners decreased by 2 percent. The 

HCBS for people with developmental y disabilities. 

California’s rental market has become tighter as 

More consumers of the Developmental y Disabled (DD) 

homeownership costs have increased and as the state 

Waiver are in California than any other HCBS waiver. 

has experienced significant population growth in the 

past 15 years. As a result, the state’s rental vacancy 

•  The Developmental y Disabled-Continuous Nursing 

rate decreased from 6.3 to 3.9 percent between 2010 

Care Program provides 24-hour continuous nursing 

and 2014. During this same period, the state’s average 

care for developmental y disabled and medical y 

income remained stagnant, both single family and 

fragile persons in residential settings.

multifamily construction starts decreased, and mortgage 

•  In-Home Operations has statewide responsibility 

requirements tightened, creating additional demand for 

for reviewing and authorizing home and community 

rental housing in the state.

services through the Medi-Cal Nursing Facility/Acute 

The high cost of housing makes affordable housing 

Hospital Waiver.

development in the state particularly challenging and 

•  In-Home Supportive Services Plus Waiver. The 

contributes to the growing need for affordable housing. 

Department of Social Services converted In-Home 

16

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

Supportive Services to a 1915(j) state plan option 

Developmental Centers and other inpatient settings to 

Medicaid program in 2009. Between 2004 and 2014, 

homes within the community. DDS has also focused on 

the program grew more than 100 percent and currently 

creating housing resources for individuals who are at risk 

serves more than 440,000 individuals in their homes. 

of moving into institutional settings. 

•  The Assisted Living Waiver is administered in 13 

The 2015 Governor’s Budget proposed closing the 

counties. It helps facilitate transition of persons 

three remaining Developmental Centers. Policy 

with disabilities from a nursing facility to a 

initiatives on de-institutionalization of individuals with 

community setting or serves individuals at risk of 

developmental disabilities have also led to the current 

institutionalization. 

statutory prohibition on the placement of individuals with 

•  Enacted in 2013, the Health Homes Program targets 

developmental disabilities into California’s Developmental 

Medi-Cal’s highest risk members who present the 

Centers, except for acute crisis care. This prohibition, 

best opportunity for improved health outcomes 

combined with the closure of Developmental Centers, 

through Health Homes Program services. Health 

has resulted in an increased need for affordable and 

Homes Program will go into effect in early 2017.

accessible housing, including in California’s highest 

cost areas. DDS’ goal is to provide a variety of housing 

•  The 1115 Waiver Renewal (Medi-Cal 2020) authorized in 

options from which individuals with developmental 

December 2015 will provide Whole Person Care tenancy 

disabilities may choose to reside, including housing 

support services to members. Whole Person Care is 

offered by the 811 PRA program. In 2016, DDS is adding 

the coordination of health, behavioral health, and social 

one position within the department; the person in this 

services to improve the overall quality of patient life.

role will assist with identifying housing resources for 

Recent Changes in Programs That Support 

individuals who are eligible for affordable housing under 

Integrated Community Living 

the 811 PRA program.

Changes to Medicaid eligibility criteria. California 

Changes in Medicaid resources away from 

first expanded Medicaid under its 1115 waiver and again 

institutional settings and toward community 

expanded eligibility as a result of the Affordable Care Act. 

living.  During the past 10 years, departments within 

More than 12.8 people are currently enrol ed in Medicaid 

CHHS focused on housing as an essential resource 

in California.

needed to stabilize healthcare services for individuals. 

As discussed in the fol owing section, the state first 

Funding. Total Medicaid spending has increased 

developed an Olmstead plan in 2003 to help persons 

substantial y in California in recent years, as a result of 

with disabilities move from institutions to live in the 

expanded Medicaid eligibility and as CHHS has pursued 

most integrated settings available. In the past decade, 

Medicaid resources available to expand HCBS. Between 

CHHS has expanded Medicaid HCBS waivers available 

2008 and 2014 total Medicaid spending increased from 

in California. Medi-Cal 2020, which is California’s 1115 

about $36 bil ion to nearly $64 bil ion, a 63.4-percent 

Waiver Renewal that will guide DHCS during the next 5 

increase (Eiken et al., 2015; KFF, 2017). 

years, was approved by the Centers for Medicare and 

Funding for long-term services and supports (LTSS) 

Medicaid Services in December 2015. The recent 1115 

went from approximately $12.7 bil ion in 2008 to nearly 

waiver renewal will support increased access to housing 

$15 bil ion in 2013 (Eiken et al., 2015). Home- and 

with supportive services. 

community-based services as a portion of LTSS also 

In 2007, DHCS developed the Long-Term Care Division 

increased during this period, indicating the continuing 

that oversees waivers and long-term service models. 

trend of decreased funding for institutionalized care and 

In 2007, MFP also awarded DHCS funds to create the 

increased funding for community-based services and 

CCT Project. To date, approximately 2,700 people 

supports. HCBS funding increased from nearly 7 percent 

have transitioned out of inpatient care into integrative 

of LTSS in 2008 to nearly 63 percent in 2013 (Eiken et 

community settings as a result of the CCT Project. 

al., 2015). In 2013, California ranked seventh highest for 

Housing has become even more of a focus in the 

HCBS fund al ocation as a percentage of LTSS funds, 

past several years. The hiring of the first staff member 

significantly more than the national average of 51.3 

dedicated to housing in DHCS did not occur until DHCS 

percent (Eiken et al., 2015). Between 2008 and 2013, 

hired a housing specialist under the MFP program in 2014. 

overall HCBS funding increased by 29.4 percent although 

funding for Institutional LTSS increased only 0.7 percent, 

In contrast to DHCS, DDS has long focused on locating 

again il ustrating the state’s priority in shifting funding 

and creating housing resources to help individuals 

toward community-based services and away from 

with developmental disabilities move out of California’s 

institutionalized care (Eiken et al., 2015). 

17

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

How the 811 PRA Program Fits With the 

CalHFA and DHCS further categorized the target 

Service and Healthcare Programs That 

population using these two priorities.

Support Community Living

1. “Individuals residing in an inpatient facility for at least 

As discussed in the Housing Context section in chapter 3, 

90 consecutive days, for which Medi-Cal has paid for 

the 811 PRA program provides rental subsidies specifically 

at least one of those days, and who are enrol ed in the 

for nonelderly people with disabilities who need affordable 

CCT Project.”

housing. Aside from NED Vouchers, no other programs 

2. “Individuals receiving Medi-Cal long-term HCBS 

in California specifically target assistance to nonelderly 

waiver or state plan services who are at risk for 

people with disabilities. Other programs that target 

placement in an inpatient facility.” 

people with disabilities specifically focus on those with 

mental il ness or who are homeless, which are not target 

Individuals under Priority 1 include residents living in 

populations of California’s 2012 811 PRA program. 

skilled nursing facilities, developmental centers, and 

intermediate care facilities. Most individuals under 

California’s Olmstead Plan

Priority 1 are individuals living in skil ed nursing facilities. 

CHHS first developed its Olmstead plan in 2003, with 

Priority 1 individuals can also include individuals 

updates in 2005, 2010, and 2012. The plan covers 

with developmental disabilities whose services are 

a broad range of strategies to prevent unnecessary 

coordinated through the Regional Centers. Al  individuals 

institutionalization of people with disabilities. In 2005, 

must be enrol ed in the state’s MFP program to qualify 

Governor Schwarzenegger convened the Olmstead 

under Priority 1 regardless of the waiver under which they 

Advisory Committee to help inform policies and 811 

receive services. Institutionalized applicants wil  be given 

practices that affect Californians’ abilities to receive 

priority over noninstitutionalized applicants if both are 

services in the least restrictive environment possible. In 

ready to move in at the same time.

2012, CHHS expanded the advisory committee’s role to 

Individuals under Priority 2 who are at risk of 

include a focus on housing and veterans. California has 

institutionalization could come from several care settings. 

not had any consent decrees compel ing it to create a 

Individuals eligible under Priority 2 are primarily DD 

statewide plan, although Olmstead lawsuits against the 

Waiver consumers who are living in community settings 

City of Los Angeles have been filed. As a result, the state 

and who are served by a Regional Center. Other waiver 

allocated housing vouchers in coordination with healthcare 

consumers living in the community are also eligible, but 

providers for seniors and those who are homeless.

because the DD Waiver is the state’s largest and serves 

The Olmstead plan outlines 12 goals, including one 

more than 100,000 consumers, most Priority 2 applicants 

specific to housing and helping individuals to transition 

are expected to come from this population.

out of institutional care to more integrative settings 

Skilled Nursing Facilities

according to their needs and preferences. The most 

recent update in 2012 predated the award of 811 PRA 

Skil ed nursing facilities house between 90,000 and 

funding so the 811 PRA program is not named as a 

100,000 In-Home or nursing facility waiver consumers, 

resource; however, 811 PRA partners consider the 811 

although only 15,000 to 25,000 are between ages 18 

PRA program an important resource to meet Olmstead 

and 61. DHCS staff estimate that 10 percent of these 

housing goals. 811 PRA team members participate in the 

individuals would be interested in and able to leave 

Olmstead Advisory Committee meetings three times a 

the skil ed nursing facility and live independently. As 

year, where they discuss the CCT Project and progress 

a result, DHCS expects that approximately 1,500 to 

toward meeting Olmstead goals. 

2,500 nonelderly people with disabilities living in nursing 

facilities would be good candidates for 811 PRA units. 

Population Served

Individuals transitioning out of nursing facilities can 

choose from several different housing models available 

Comparison of Target Populations: Planned 

through the CCT Project, including living at home alone, 

Versus Actual

living with family or roommates, single-room-occupancy 

units, or regional care settings. 

To be eligible for the 811 PRA program, an applicant 

must be between the ages of 18 and 61 at move in, 

Regional Centers

extremely low income, and be enrol ed in or eligible for 

Regional centers are nonprofit organizations that 

services under Medi-Cal waivers administered by DHCS 

contract with DDS to provide services to approximately 

or DDS.

300,000 individuals with developmental disabilities. In 

18

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

California, 21 regional centers exist. Individuals who 

811 PRA program among their clients, assess applicants 

receive services coordinated through the regional 

for eligibility, and maintain a waiting list of applicants 

centers may reside in many different settings, including 

eligible for the 811 PRA program. When an appropriate 

in their own homes, in group homes, in skil ed nursing 

unit becomes available, TRO case managers refer 

facilities, or in various types of inpatient settings, 

applicants to apply at specific properties and help them 

including skilled nursing facilities and developmental 

complete the application process, provide transition 

centers as discussed in the fol owing sections.

services as tenants move in to the 811 PRA units, and 

manage the service delivery provision. Owners applying 

Developmental Centers

for 811 PRA rental assistance are required to partner with 

Approximately 1,000 individuals reside in developmental 

one or more TROs before they apply for 811 PRA funds 

centers, a reduction from 3,900 in the 1970s. DDS 

to manage the influx of qualified applicants for the 811 

expects that in the next 5 years, approximately 700 

PRA units at their properties.

individuals with developmental disabilities will be 

For the 2012 811 PRA application, California uses a 

transitioning into integrated community living from 

decentralized outreach and referral model. DHCS and 

developmental centers as they close. DDS staff estimate 

DDS do not maintain a centralized statewide waiting 

that approximately 10 percent of these individuals will 

list for 811 PRA applicants. TROs are each responsible 

be eligible for and interested in moving into integrated 

for referring only applicants from their own populations 

housing under the 811 PRA program. 

to the properties where they have agreements with 

Outreach, Referral, and Application

owners. The Notice of Funding Availability requires 

that the owner and TRO submit a tenant selection plan 

Through the end of 2015, 51 individuals had been 

that governs the process of selecting eligible tenants, 

referred to complete an application for the 811 PRA 

but no standardized requirement exists to maintain 

program and 28 residents were living in 811 PRA-funded 

a waiting list in a certain way. In their Memorandums 

units. CCT organizations referred 39 individuals living 

of Understanding that are approved by CalHFA, 

in nursing facilities and Regional Centers referred 12 

property owners and TROs must agree to give priority 

individuals. Most of the referrals were for those meeting 

to institutionalized persons for available units. Within 

Priority 1 (residing in inpatient facilities for at least 9 

the institutionalized and noninstitutionalized target 

months); only 7 of the 51 (14 percent) referred to the 

populations, property owners decide on the method for 

program were at risk for institutionalization. 

choosing from 811 PRA waiting list (for example, first 

come, first served or a lottery) if fewer units are available 

Outreach, Referral, and Application Process

than people ready to occupy them. 

Since their 2012 funding application submission, 

Target Population Screening and Eligibility

CalHFA and DCHS have made one significant change 

in how applicant referrals are coordinated in the 

TROs identify eligible 811 PRA applicants within their 

811 PRA program. The agencies added DDS as a 

respective populations and determine whether they are 

partner. Although DCHS had always intended to 

eligible for the 811 PRA program. Once the applicant 

serve persons with developmental disabilities at risk 

is identified, the TRO submits a completed referral to 

of institutionalization, the partnership with DDS in 

DHCS, which confirms eligibility based on age and 

identifying these consumers came after CalHFA was 

enrol ment in Medi-Cal. Once a unit becomes available, 

notified that the grant was funded. When the 2012 

the TRO staff person refers the individual to the property 

application was submitted to HUD, it was assumed that 

owner to complete an application for the property and 

DHCS as the state Medicaid agency would coordinate 

provides assistance as needed. Individual property 

these noninstitutional placements with DDS. In contrast, 

owners establish their own rental criteria, including 

placements into the 811 PRA program for DD Waiver 

rental history, credit, and criminal background. Owners 

consumers from institutions were always expected to be 

must outline their selection criteria in their tenant 

coordinated through the CCT Project.

selection plans that are submitted to and approved by 

CalHFA. The property manager determines whether the 

CCT organizations and Regional Centers act as tenant 

individuals meet the property’s criteria and works with 

referral organizations (TROs) for their respective 

the TROs to determine move-in dates or placement on a 

customers for the 811 PRA program. Regional Centers 

property waiting list. 

may also choose to partner with a CCT acting as a TRO 

rather than with a developer directly. TROs promote the 

19

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

Implications of Target Population and 

given equal weight in selecting participants within each of 

Outreach and Referral Methods

the two priorities. It is also not clear how the divisions wil  

Having two different target populations from two different 

track referrals to ensure that unit offers are made according 

types of organizations has implications on the 811 PRA 

to the appropriate order of priority of the target population. 

program’s outreach and referral methods and tenancy 

DHCS and DDS staff reported that they both have future 

of 811 PRA units. Most 811 PRA tenants and most 

plans to establish a position that will assist with tenant 

applicants referred have come from nursing facilities. Of 

referrals and to help facilitate coordination of 811 PRA 

the 28 tenants living in 811 PRA units at the end of the 

applications and available units. As of early 2016, CalHFA 

2015, only 3 were DD Waiver consumers. The differences 

and DHCS staff were considering purchasing software to 

in management, procedures, program oversight, funding 

track participant applications and priorities.

levels, and access to certain services between the two 

organizational types may also lead to some disparities 

Housing Strategies

within the 811 PRA program. 

Property and Unit Characteristics 

The first 811 PRA units were fil ed in a less formal manner 

as applicants were individual y matched with 811 PRA 

Through the end of December 2015, CalHFA had 

units as they became available. As CCT participants were 

executed four Rental Assistance Contracts for a total of 

initial y identified as the priority target population in the 

78 811 PRA units. Table 2.4 shows the number and the 

grant application, CCT organizations quickly identified 

characteristics of properties with units under executed 

potential 811 PRA applicants within their caseloads 

RACs. Most units under contract are either studios (47) 

when the first 811 PRA units became available. Regional 

or one-bedroom units (29), because those two sizes 

Center staff did not receive timely information about the 

represent the most need. The remaining two units under 

811 PRA program and were not ready to make program 

RAC are two-bedroom units. Out of the 78 units, 3 are 

referrals when the first 811 PRA units became available 

currently designated as mobility accessible and none are 

in late 2014. As of late 2015, many Regional Center staff 

designated as being accessible for persons with vision or 

were trained on the program and are prepared to make 

hearing impairments. (The accessibility of the remaining 

additional referrals going forward. 

units will not be known until unit turnover and owners 

know which units the 811 PRA subsidy will be applied.) 

The decentralized approach to target population 

outreach and the lack of a centralized waiting list may 

At the end of 2015, 28 of the 78 811 PRA units under 

have implications on the number and types of individuals 

contract were occupied. The remaining units under 

eventual y placed in 811 PRA units. The informal method 

RAC are in properties that are ful y occupied with other 

of matching consumers to units, which has been used 

tenants; this fact has an implication for how quickly 

to date, is not easily replicable when the program gets 

California meets its occupancy goals. 811 PRA units will 

larger. However, it is not clear how DCHS and DDS plan 

be fil ed once existing tenants move out. 

to coordinate future referrals so that both populations are 

Table 2.4 : Characteristics of Proper ties With 811 P R A Unit s

Property Name and 

Tenant Referral 

811 PRA Units/Total 

Owner

City and County

Organization

RAC Amount ($)

Units

Initial Occupancy Date

Home and Health Care 

Garden Village, Domus 

Sacramento, Sacra-

Management, Alta 

450,129

11/195

3/2015

Development

mento

Regional Center

Essex Apts., Insight 

Lancaster, Los Angeles

Libertana

1,116,017

37/150

9/2015

Development

Casa Verde, Mercy 

San Leandro, Alameda

East Bay Innovations

356,443

10/68

1/2016

Housing

Bermuda Gardens, 

San Leandro, Alameda

East Bay Innovations

785,327

20/80

1/2016

Mercy Housing

RAC = Rental Assistance Contract. PRA = Project Rental Assistance. 

Source: California Housing Finance Agency (2016)

20

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

CalHFA signed its first RAC in March 2015 for 11 811 PRA 

proposed project. HCD staff provide technical assistance 

units; the first unit was occupied in March 2015. The owners 

on housing components and fair housing marketing 

of the property, Garden Village, received Low-Income 

strategies, and DHCS staff help with tenant selection 

Housing Tax Credits to rehabilitate a severely distressed 

plans, services, and outreach to participants. DHCS 

property that had fal en into disrepair and foreclosure. By 

and DDS staff also facilitate meetings and partnerships 

the time the new owners, Domus Development, obtained 

between owners and TROs. 

the property from the bank, drugs and criminal activity 

All five agencies review and approve 811 PRA funding 

had plagued the property, and about one-half of its units 

applications according to their respective expertise. The 

sat vacant. Domus completely rehabilitated the property, 

agencies maintain a checklist kept on a shared website 

reducing its unit count from 201 to 195 and added indoor 

that shows whether each component has been reviewed 

and outdoor community spaces, two pools, a computer lab, 

and found acceptable. Applications are discussed at the 

onsite management, and security. 

biweekly program meetings and the group col ectively 

Property Selection Methods and Financing

decides whether to move forward with awarding a RAC. 

Outreach to owners.  To gain interest in the 811 PRA 

Financing. Projects eligible for 811 PRA funding in 

program, key staff from HCD and DHCS extensively 

California must be funded by HCD, CalHFA, or TCAC. 

marketed the 811 PRA program to owners of state-

All 811 PRA projects awarded have been financed with 

funded multifamily properties. HCD and DHCS staff 

LIHTCs, and some properties have as many as six 

held webinars, conducted in-person local meetings 

sources of funding sources, including financing through 

throughout the state, and responded to questions from 

HCD, CalHFA, and TCAC programs previously described. 

developers. Contact information for HCD and DHCS staff 

Eligible properties include both already-built properties 

is also provided in all marketing and application materials 

funded through one of the three state housing agencies 

and on the 811 PRA program website. 

and new construction and rehabilitation properties, 

provided that they meet the 811 PRA occupancy 

Program staff have conducted limited targeted outreach 

schedule.

to owners of existing projects in their housing agency 

portfolios because agency data systems do not enable 

Implementation Schedule

staff to easily determine which properties may be eligible 

CalHFA proposed an 18-month leasing schedule in its 

for 811 PRA subsidies. Program staff report that their 

2012 funding application and expected to occupy up to 

outreach methods have been time-consuming, but 

19 811 PRA units per month, or 228 units in the first year 

necessary and ultimately successful. The effort needed to 

of the grant. CalHFA’s expectation for occupancy in its 

obtain adequate applications was not unexpected given 

first grant year represented about two-thirds of the 811 

California’s complex and expensive housing development 

PRA units it expected to fund under the 2012 811 PRA 

market, the statutory 25-percent limit discussed 

program. Per its grant Cooperative Agreement, 811 PRA 

previously, and the cap on the 811 PRA contract rent to 

units must be under contract by 2022 and all PRA funds 

be affordable to households earning up to 50 percent of 

should be spent by 2025.

Area Median Income.

In addition to the 78 units under RAC through 

Owner application process. The 811 PRA application 

November 2015, an additional 28 units are pending 

period began August 1, 2014, and is open until all 811 

RAC execution. The pending units consist of 13 811 

PRA funds are awarded. HCD staff streamlined the 

PRA units in a 54-unit Solano County development and 

application process to make it as easy as possible for 

15 811 PRA units in three projects funded through the 

owners interested in the program to apply for funding. 

MHP. As of February 2016, the total number of 811 PRA 

HCD staff created an application form, sample tools, 

units under RAC and pending RAC execution was 106, 

including memorandums of agreement between owners 

representing more than one-half of the 2012 projected 

and TROs, tenant selection plans, board resolutions, and 

number of units under the grant. HCD and DHCS 

affirmative marketing plans. Owners are encouraged to 

staff planned to conduct another round of outreach 

use the standard documents but may propose changes if 

marketing to owners in 2016 and expect to continue 

in compliance with program requirements. 

to make progress toward recruiting enough properties 

HCD and DHCS staff also provide technical assistance 

needed to meet their program goals. 

to owners throughout the application process. When 

owners first express interest, an HCD staff member holds 

an initial call to discuss program requirements and the 

21

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

Rent and Subsidy Levels

Regional Center consumers receive lifetime services 

In response to the significant need for rental subsidies 

under the DD Waiver after they leave the institution as 

for the target population, the agencies applied for the 

long as they are eligible and have an individual services 

maximum funding amount available to their state and 

plan (cal ed an Individual Program Plan or IPP) in place. 

determined the number of 811 PRA units that it could 

A service coordinator conducts routine visits with the 

support. Staff estimated the number of 811 PRA units 

consumer every 90 days and ensures that the IPP is being 

using HUD’s calculated initial tenant rent payment and 

appropriately implemented. As may be agreed to in the 

a Fair Market Rent at the higher end in the state (Santa 

IPP, a Supportive Living or Independent Living service 

Cruz County). CalHFA based rents on 40 percent of 

provider funded by the Regional Center may have more 

AMI, although HUD scored its application using 50 

frequent consumer contact to assist with daily needs, 

percent of AMI. CalHFA initial y included costs for onsite 

including cooking, shopping, transportation to healthcare 

service coordinators within its application budget (similar 

appointments and daily activities, and equipment needs. 

to requirements for other state supportive housing 

Coordination of Services and Housing

programs), but HUD did not approve these costs. The 

average committed 811 PRA rental subsidy amount 

CCT coordinators and Regional Center service providers 

under the first 78 units under RAC is $578 per unit 

help participants move into 811 PRA units and ensure 

per month thus far, compared with the average $705 

ongoing connection to services. Although services 

budgeted rental subsidy in the Cooperative Agreement 

are provided according to individual consumer plans, 

(based on a contract rent of $993 per month and a tenant 

services are coordinated differently for CCT participants 

contribution of $288 per month). 

living in inpatient facilities than participants who are at 

risk for placement into institutional care. 

Unit and Tenant Turnover

CCT organizations have funding available for transition 

As of November 2015, of the 19 units occupied, 2 have 

services through the MFP program, and all CCT 

turned over. As of December 2015, of the 28 units 

participants receive 12 months of transitional services 

occupied, 3 participants have exited the program. One 

after they leave inpatient care. MFP funding covers 

resident returned to an inpatient facility due to health 

the costs of furniture and household goods, security 

concerns, 1 left the program, and 1 resident died. In 

deposits, and first and last months’ rent. Participants 

addition, 1 811 PRA participant requested a move due 

also have access to a 24-hour call system. Individuals 

to needing a larger bedroom size for a family member or 

with developmental disabilities who are transitioning 

live-in aide. 

from an institutional setting receive transition services 

funded through the Regional Center’s CCT Project. Once 

Service Provision and Coordination

CCT participants reside in the community, their ongoing 

supportive services may be funded through the HCBS 

The exact services each person receives varies depending 

waiver under which they receive services.

on his or her individual needs and the Medi-Cal services 

he or she is eligible to receive. HCBS waiver services 

Individuals who are “at risk” and do not meet the 

include case management, community transition services, 

90-day institutional stay criteria do not qualify for 

private duty nursing, family home health aides, utility 

services funded through MFP. Transitional services can 

reimbursement, habilitation services, and respite care, 

be provided under the DD Waiver or other long-term 

among many others. In addition to HCBS waivers, persons 

care services as long as those transitional services are 

with disabilities in California can also be served through 

included in an individual’s IPP.

a state plan service, through a Medi-Cal Managed Care 

Gaps in Services

Plan, or through county-funded services. Counties in 

California provide some level of services to people with 

Gaps in services may occur because different services 

disabilities, including comprehensive specialty mental 

are available in different locations throughout the state 

health services, substance use disorder services, and 

and through different Medi-Cal waivers. Service provider 

long-term care services.

staff also note the need for some providers, such as 

home health aides, in some locations due to pay that 

Ongoing Services

is not competitive. The range of services available 

CCT participants are eligible for ongoing services 

also depends on the knowledge and training of staff at 

through enrol ment into a Medi-Cal waiver. Some large 

individual CCTs and Regional Centers. CCT capacity and 

service provider organizations are also CCTs and can 

services offered vary widely, and some organizations 

provide a continuity of services. 

may transition very few individuals out of inpatient care. 

22

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

2013 811 PRA Application

assisted units, 811 PRA program staff experienced 

some challenges navigating HUD’s reporting systems. 

CalHFA applied for and received $11,985,436 in 

CalHFA’s Asset Management staff encountered difficulties 

2013–2014 811 PRA funding, slightly less than its 

submitting tenant records into HUD’s Tenant Rental 

2012 award of $12,208,558. The 2013–2014 funds are 

Assistance Certification System, and releasing subsidy 

slated to subsidize more units than the 2012 funds 

payments to owners. Because owners may not move 

or 283 units compared with 241 in 2012. Significant 

tenants into 811 PRA units until TRACS and Integrated 

differences exist between the 2013–2014 funding 

Real Estate Management System data are submitted, any 

application and the 2012 program. CalHFA targeted 

delays in entering data can delay the occupancy of 811 

assistance to one geographic area, Los Angeles City 

PRA units. CalHFA also experienced a delay of several 

and County, and specifically to homeless persons with 

months in getting the first subsidy payment released by 

disabilities. The agencies targeted this area because 

HUD. As of November 2015, all data issues with TRACS 

of two factors: (1) the availability of a pool of flexible 

and iREMS have been resolved with HUD and all rental 

county subsidy funds that are compatible with 811 PRA 

subsidies have been retroactively paid to the owners.

program requirements (that can be used to bring the 

total contract rent on the unit to FMR), and (2) the large 

CalHFA monitors DHCS and DDS activities through regular 

number of homeless persons within the area needing 

meetings and quarterly reports. DHCS and DDS maintain 

housing and services. The 811 PRA program will also 

separate systems for tracking referrals, applicants, and 

help meet the requirements of lawsuits mandating 

tenants from their respective populations. At the time of 

services for persons who are homeless. The Housing 

the site visit, DHCS and DDS were developing databases 

Authorities of the City of Los Angeles and the County of 

to better track participant information. 

Los Angeles agreed to set aside a combined 150 HCVs 

Currently, California has a decentralized, unautomated 

for homeless, nonelderly people with disabilities as 

system for tracking and prioritizing 811 PRA-eligible 

leverage for the 811 PRA funding. 

applicants and referrals to units. DHCS and CalHFA are 

exploring purchasing software to assist with referral 

Leveraging

tracking and prioritization.

CalHFA did not leverage any HCV units or other subsidized 

Successes and Challenges

units as part of its 2012 grant application. The agency 

and its partners felt it was too onerous to try to obtain 

The first 811 PRA tenants moved from institutions to 

leveraged vouchers from specific PHAs, as their program 

new integrated housing units in March 2015. Program 

was statewide. However, as noted previously, the grantee 

staff from all five agencies discussed initial successes 

and the partner agencies provide in-kind contributions of 

and challenges they have experienced in 811 PRA 

staff time to support the 811 PRA program. 

program implementation. 

Program Administration, 

Factors Contributing to Program Success

Assessment, Information Systems, 

Early program planning.  California was the first state 

and Data Infrastructure

to have tenants in units funded by the 2012 811 PRA 

program. CalHFA staff attribute their ability to fill the first 

CalHFA monitors the 811 PRA grant through regular 

811 PRA units to their early program start and continual 

meetings with al  four partnering agencies and through 

planning process. Agency staff met biweekly to flesh out 

a shared website to track team members’ activities. 

program details after the grant application was submitted. 

CalHFA also maintains a public website with detailed 

From previous experience with HUD programs, staff 

up-to-date information on the 811 PRA program and 

knew that execution of the grant agreement could take 

funding opportunities. CalHFA uses Housing and 

some time and they wanted to be ready to hit the ground 

Development Software system to send, receive, and 

running once they had received contractual approvals. In 

process tenant and voucher records for the residents in 

anticipation of potential delays, CalHFA released the NOFA 

the 811 PRA program. CalHFA was the first grantee to 

for 811 PRA funding in August 2014, 2 months before 

use this system and helped Housing and Development 

HUD signed the Cooperative Agreement on October 2014, 

Software modify the system for 811 PRA.

so they would be ready to issue awards once they were 

under HUD agreement. The NOFA strategy was a prudent 

Because California was the first state to execute a RAC 

and successful method of attracting developers and 

with an owner and to house individuals in 811 PRA-

owners. CalHFA did not want to al ocate counties a certain 

23

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 2. California Section 811 Project Rental Assistance Program

amount of assistance based on needs and risk not finding 

Improved quality of life for 811 PRA residents.  Three 

properties that met the 25-percent statutory limitation on 

811 PRA tenants residing at one property, and their 

units restricted to persons with disabilities. 

service providers, were interviewed during the site visit. 

Effective partnerships.  Program staff credit much 

All expressed their gratitude for the 811 PRA program as it 

of their 811 PRA program progress to the effective 

has provided the comprehensive quality care and housing 

partnerships of the five agencies. Although the five 

they need. All three residents stated that they were very 

agencies did not have a long history of partnering together 

satisfied with their units and caregivers, and felt that they 

prior to the 811 PRA program, they quickly established a 

had access to a social community on site. The caregivers 

close working relationship. The partnership is effective due 

(representatives from both a Regional Center and CCT) 

to the ongoing communication between the parties and 

stated that the residents were thriving under this program. 

clear delineation of program tasks. Since the start of the 

811 PRA Program Challenges

planning process, staff from the four agencies (later five 

as DDS became a partner) have met biweekly to resolve 

811 PRA program staff reported some challenges 

issues and make program decisions. Although CalHFA 

in the initial program administration, both due to the 

stated in the grant application it would cross-train staff 

complexity and high development costs in California 

from each other’s agencies, clear delineation of program 

and to the constraints of the 811 PRA program. The 

tasks seem to exist by agency depending on the expertise 

evaluation team further identified some areas of the 

of each agency and particular staff. This approach 

program that have an effect on the efficiency and 

has helped the agencies be more efficient in program 

effectiveness of the 811 PRA program.

administration and resulted in less duplication of effort. 

The availability of capital sources, such as LIHTCs or MHP 

Committed staff. The 811 PRA program has made 

funds, real y drives when owners apply for the 811 PRA 

progress through the personal efforts and perseverance 

program. California has spent considerable time figuring 

of individual staff members. HCD staff established points 

out how to use capital sources with the program because 

for the 811 PRA program in the most recent MHP General 

many sources are incompatible. All 811 PRA projects have 

Component program NOFA. DHCS and DDS staff worked 

been financed with LIHTCs to date. A lot of soft money is 

diligently to quickly fill the initial 811 PRA units to meet tax 

needed to make the projects financial y feasible, especial y 

credit occupancy deadlines. CalHFA staff worked with 

in urban settings and high cost areas in California. Some 

HUD and the software vendor to resolve TRACS related 

projects have as many as six funding sources.

modification to accept 811 tenant files and vouchers. 

Low contract rents at 50 percent of FMR are also a 

Several staff spent considerable time on marketing to gain 

challenge in attracting developers and owners. Developers 

owner interest in the program. 

prefer to participate in programs that provide higher rental 

Streamlined owner application and review process. 

subsidy and secure a higher percentage of units.

California’s project owner application process is one 

Capital financing is needed to provide financial 

that other grantees can replicate. 811 PRA housing staff 

incentive and ease financial feasibility. To ensure 

simplified and streamlined the process to make it as easy 

financial feasibility due to high development costs in 

as possible for owners to apply for funding. Interested 

California, CalHFA and its partners have tried to team 

owners may apply any time, as the application process 

up with compatible funding sources to expand the 811 

is continuously open. HCD staff first have a call with any 

program. However, this task has not been easy due 

interested owner to discuss program requirements and the 

to programmatic restrictions in many of the funding 

proposed project. California has a sample memorandum 

sources. California requested HUD to al ow for targeting 

of understanding with a TRO and a tenant selection plan 

its program partly to veterans to piggyback onto veterans 

online as well as the application that owners may review 

funding. California Housing Finance Agency was told 

and complete. Although owners may alter certain tenant 

that this targeting to veterans would be a fair housing 

selection plan sections, it must be in compliance with 

problem and was therefore not permitted.

program requirements. Therefore owners are encouraged 

Different target populations. The two distinct target 

to utilize the standard tenant selection plan. HCD and 

populations, CCT participants and Regional Center 

others on the team provide technical assistance to the 

participants at risk for institutionalization, are overseen 

owner in completing the application if needed.

by different agencies and have different funding sources 

The use of a shared private website to track each agency’s 

attached. The differences in the management and 

progress in the owner application review process is an 

funding sources could lead to some 811 PRA participants 

efficient method to qualify owners and properties. 

getting some services that are not available to other 

24

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Chapter 2. California Section 811 Project Rental Assistance Program

811 PRA participants. The CCT or Money Fol ows the 

these populations. Thus, HCD and DCHS have needed 

Person is for individuals who are in institutional settings 

to spend considerable staff time conducting outreach to 

with Medicaid covering the cost of their stay. CCT can 

potential project sponsors to gain additional interest. 

pay for transition coordination, first month’s rent and 

Lower targeted contract rents in 811 PRA program. 

deposit, home furnishings setup, assistive technology, 

Another deterrent to owner interest in the 811 PRA 

and home modification. All the CCT participants are 

program is that the rents that CalHFA targets under 

enrol ed in the Nursing Facility/Acute Hospital Waiver, 

811 PRA are significantly less than the rents al owed 

which pays for case management, nursing, and personal 

for under other housing programs funded in the state. 

care. On the other hand, individuals from the Regional 

The PRA program enables grantees to determine the 

Center institutional settings or at risk of being homeless 

rent level al owable for PRA units, as long as it does not 

are usual y on the Developmental y Disability Waiver. This 

exceed the area’s FMR as determined by HUD. Grantees 

waiver covers assistive technology, home modifications, 

were awarded points in their grant applications for 

and ongoing health services, but does not pay for rent, 

proposing lower rent levels. In its 2012 grant application, 

deposits, or furnishings which participants usually get 

CalHFA established target PRA rents to be affordable 

help with from family members. Most Regional Centers 

to persons earning 50 percent of AMI. Other housing 

also have limited funds to help with home setup. The 

programs funded through the state enable developers 

exact services each person receives varies depending 

to set rents at FMR, which are substantial y higher. 

on their individual needs and the Medi-Cal and Regional 

For instance, the rent proposed by CalHFA based on 

Center services he or she is eligible to receive. 

blended rents in Santa Cruz County was $755. The rent 

CCT coordinators and Regional Center service providers 

determined in the cooperative agreement with HUD 

help participants move into 811 PRA units and ensure 

was $955, and the FMR at the time of the proposal was 

ongoing connection to services. Although services are 

$1,329. If multiple sources are available for affordable 

provided per individual consumer plans, services are 

housing in the state, developers will natural y seek the 

coordinated differently for CCT participants living in 

sources that will be the most financial y feasible. 

inpatient facilities than participants who are at risk for 

The rent level proposed by California was a result of 

placement into institutional care.

HUD and the state’s desire to try to fund as many units 

Getting a complex program launched and running 

as possible with the most cost-effective approach. The 

smoothly.  811 PRA program staff reported that a 

challenges experienced during program implementation, 

significant challenge was the amount of planning and 

specifical y the lower than expected owner interest, 

staff time needed to develop program policies and 

shows that the grantee might have been overly optimistic. 

procedures and getting the program implemented at the 

Challenges in service provision.  The 811 PRA program 

five state agencies. Nearly all staff interviewed reported 

reflects a policy shift away from institutional settings and 

that they spent considerably more time on the program 

toward community-based services and supports. This 

than initial y planned. Key CalHFA, DCHS, California 

change has led to some chal enges in service delivery for 

Department of Developmental Services, and California 

the target population. 

Department of Housing and Community Development 

staff all routinely spent more than one-half of their time 

The limitation on the number of 811 PRA units within one 

implementing the program in the first year, in contrast to 

development can be a chal enge for service provision. 

initial staff estimates of 0.10 to 0.20 each. Administrative 

DCHS staff report that many services, such as nursing 

fees are not sufficient to reimburse the value of actual 

services, can be provided more efficiently at properties 

staff time spent on the project. 

where several individuals need services, and economies 

of scale can be achieved. Reimbursement of Medicaid 

Percent cap on targeted housing units. The 

waivers are also calculated differently if services are 

requirement that limits properties participating in the 811 

shared among multiple individuals at one property. 

PRA program to have no more than the 25-percent cap 

California Community Transitions and Regional Center 

of units set aside for the target population has been an 

staff noted difficulty attracting service providers due to 

impediment to recruiting owners in California. Several 

low Medicaid reimbursement. CCT organizations have 

state housing financing programs are incompatible with 

had a particularly difficult time hiring Home Health Aides. 

the 811 PRA, including those that award points for units 

The lack of services in an area can dictate if 811 PRA 

specifical y set aside for special needs housing in the 

units will be approved because availability of services 

state’s QAP. Many owners whose mission is to serve 

is required for a property to be approved for 811 PRA 

low-income people or persons with disabilities were not 

funding. The CCT Project does not operate in all 58 

eligible to apply because their properties already support 

counties in California.

25

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26

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 3. Louisiana Section 811 Project Rental Assistance Program

Louisiana Section 

Supportive Housing program. The program provides a 

stable housing environment in an integrated, community-

811 Project Rental 

based setting for individuals and families with disabilities 

who have supportive service needs. Since 2007, the 

PSH program has assisted individuals with severe and 

Assistance Program

complex disabilities, providing affordable rental housing 

(through rental subsidies) with voluntary, flexible, and 

individualized services.

Original y, the PSH program targeted Louisiana’s 

neediest area, the Gulf region (cal ed the Gulf 

Introduction

Opportunity, or GO Zone). The GO Zone PSH program 

is part of Louisiana’s larger Road Home Program, a 

In 2012, the Louisiana Housing Corporation (LHC) and 

far-reaching initiative that rebuilds housing in Louisiana, 

the Louisiana Department of Health (LDH) partnered to 

making it safer and more resistant to flooding and 

apply for Section 811 Project Rental Assistance program 

hurricane damage.

funds. HUD awarded Louisiana $8,489,928 to provide 

Although not directly hit by the hurricanes, the storms 

rental subsidies for 199 units of supportive housing 

affected other state areas. Such extreme weather 

for nonelderly adults with disabilities with extremely 

has exacerbated the preexisting housing affordability 

low incomes. Beyond the 811 PRA program’s statutory 

crisis across the state, disproportionately affecting 

eligibility requirements, Louisiana’s target populations 

persons with disabilities. In the other state areas, the 

were prioritized in this order: 

indigent population with high service support needs has 

1.  Persons who are inappropriately institutionalized.

increased. Due to these factors, Louisiana wanted to 

2.  Homeless persons. 

expand its PSH program outside the GO Zone. When the 

opportunity arose to apply for 811 PRA program funds, 

3.  Persons who are at risk of homelessness (including 

LHC and LDH saw an opportunity to expand and target 

those living in transitional housing for persons who are 

the PSH program into these areas. Thus, Louisiana’s 811 

homeless) and persons at risk of institutionalization.

PRA program targets eligible households in the northern 

To learn about 811 PRA program implementation, two 

and central areas of the state. The 811 PRA program has 

evaluators conducted a site visit in October 2015. 

become an important resource for expanding the PSH 

At the time of the visit, six residents resided in three 

program statewide.

developments in northern Louisiana. At the close of 2015, 

The 811 PRA program is a component of the PSH 

Louisiana had 34 units under a RAC; 9 units were vacant, 

program due to the similarity of mission, the populations 

18 were unavailable (waiting on turnover), and 7 were 

served, and the type of services provided. Although 

occupied with 811 PRA residents.

the 811 PRA program is a PSH program component, 

Grantee Partnership, Organizational 

this report, to enhance clarity will refer to the 811 PRA 

program specifical y unless information applies to the 

Structure, and Management

overall PSH program. 

Background

Partnerships and Organizational Structure

Since 2005, Louisiana has been deeply affected by 

LHC is the 811 PRA program grantee. The Louisiana 

several severe storms. Hurricanes Katrina and Rita 

Housing Authority (LHA), a department under LHC, 

devastated the Gulf Coast region, displacing more than a 

administers the 811 PRA program. Since 2007, LHA 

mil ion people. Hurricane Katrina damaged approximately 

and LDH have worked closely together to develop 

one mil ion housing units, including 500,000 units in 

and manage the PSH program. Their long history of 

Louisiana (Sorrel s, 2015). A month after Hurricanes 

collaboration in developing and implementing supportive 

Katrina and Rita, more than 600,000 people in the Gulf 

rental housing for persons with disabilities provided the 

Coast region were without stable housing (Plyer, 2015). 

experience and background needed to apply for and 

The aftermath of these storms left many people homeless 

administer the 811 PRA program. Administered by LHA 

or at risk of homelessness. 

and LDH, the PSH program is composed of several state 

and HUD-funded programs. Two examples are the 2,000-

To meet the displaced and homeless population’s 

unit Project-Based Voucher program and the 1,000-

housing needs, Louisiana developed the Permanent 

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Chapter 3. Louisiana Section 811 Project Rental Assistance Program

unit shelter-plus-care component of the PSH program. 

Executive Management Council. The LDH deputy 

Given the partners experience administering these rental 

secretary chairs the Executive Management Council. 

assistance and service programs, LHA and LDH wanted 

Council members include the assistant secretaries for 

to expand the PSH program structure and processes to 

several LDH program offices. These program offices 

the 811 PRA program. 

include the Office for Citizens with Developmental 

LHA and LDH are responsible for the daily management 

Disabilities, Office of Behavioral Health, Office of Aging 

of the 811 PRA program; the Executive Management 

and Adult Services, Office of Public Health, Bureau of 

Council oversees the program. Joint responsibilities 

Health Services Financing (Medicaid), Bureau’s MFP 

include dispute resolution, data col ection, program 

director, and LHA executive director. LDH provides 

evaluation, Executive Management Council participation, 

staff to the Executive Management Council who assist 

and ongoing communication. Individual agency 

with performing organizational duties. The Executive 

responsibilities are described in the fol owing sections. 

Management Council governs the 811 PRA program, 

The delineation of responsibilities between LHA and LDH 

including making decisions about the target population, 

has not changed since the 811 PRA funds were awarded.

program eligibility, program expansion, contracts, and 

budgets. It also reviews progress reports and program 

Louisiana Housing Corporation and Louisiana 

performance. Committee members meet monthly and 

Housing Authority. Created in 2011, the LHC 

more frequently as needed. 

consolidates the state’s funding sources and affordable 

housing programs. It also provides a coordinated 

Program Financial Structure

approach to the state’s housing policy to ensure an 

Of the $8,489,928 in 811 PRA funds awarded to 

adequate supply of affordable and accessible housing 

Louisiana, $7,861,045 is designated for rental assistance. 

for all state residents. LHC al ocates federal LIHTC and 

The remaining $628,883, or 8 percent of the rental 

oversees the HOME Investment Partnerships Program, 

assistance amount, is intended to cover administrative 

Louisiana Housing Trust Fund, and other housing 

costs. All 811 PRA administrative funds have been 

development programs. LHC is also a Project-Based 

al ocated to LHA, because it must administer the RACs 

Contract Administrator, overseeing 172 contracts with 

during the life of the grant requirements. 

14,447 units. 

In Louisiana’s 811 PRA program application, LHA 

LHA administers the PSH program, which includes 

expected to have one ful -time staff person, the LHA 

managing the 811 PRA program. Managing the 811 

executive director, managing the program through the 

PRA program includes identifying eligible properties, 

startup phase. In addition to the executive director, a 

reviewing property owners’ applications for 811 PRA 

housing finance specialist or program specialist has 

funding, underwriting and awarding 811 PRA funds, 

assisted with program administration. The LHA chief 

developing and executing RACs between LHA and 

financial officer and other LHC staff are responsible for 

property owners, and ensuring 811 PRA program 

administering TRACS and the Line of Credit Control 

compliance. LHA has oversight over all properties 

System (LOCCS). In addition, LHC contracts with a 

selected for the 811 PRA program.

housing specialist who identifies units for the 811 PRA and 

Department of Health and Hospitals. LDH is 

PSH programs. The actual amount of LHC staff time to 

responsible for assessing or establishing the population 

implement the program far exceeds what was expected. 

targeting policy; providing local infrastructure for 

The fact that the 811 PRA program involves expanding 

outreach, referral, and supportive service delivery; and 

the PSH GO Zone program into a broader service areas 

sustainability planning for services linked to 811 PRA-

drives up staff time. LHC staff time is paid through 811 

PSH units. LDH is also responsible for:

PRA administrative fees.

•  Outreach to potential 811 PRA program participants.

LDH original y expected the LDH PSH program director 

•  Referral of individuals to the 811 PRA program.

and the MFP project director to dedicate 15 percent of 

their time to the 811 PRA program, and the assistant 

•  Connection of program participants to services. 

secretary for the Office of Behavioral Health to dedicate 

•  Participation in property selection.

5 percent. In addition to the three LDH staff assigned 

to assist with 811 PRA program management and 

•  Oversight and monitoring of LDH agencies and 

implementation, LDH has a project coordinator who 

service provider agencies. 

manages daily administrative and programmatic tasks. 

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Chapter 3. Louisiana Section 811 Project Rental Assistance Program

State Context: Housing Programs

the least restrictive settings possible that meet their needs 

and preference was the legal basis for the  Barthelemy v. 

Housing Policy

Louisiana Department of Health Hospitals class action 

lawsuit (referred to as “Barthelemy”) filed in 2000 by 

Many factors influence the State of Louisiana’s housing 

Louisiana’s Protection and Advocacy System. The suit 

policies, including the effects of several damaging 

against LDH was filed on behalf of individuals living in 

storms, including Hurricanes Katrina and Rita. These 

nursing homes or at imminent risk of being placed in one. 

storms reduced available housing and resulted in 

The lawsuit aims to increase the options for community-

increases in displaced persons and homelessness. 

based services and ensure that all individuals are informed 

Thus, Louisiana strived to meet the needs of its affected 

of their housing and service options.

residents by providing community-based housing with 

long-term supports, especial y to the most vulnerable 

Existing Programs

population, extremely low-income homeless individuals 

After Hurricanes Katrina and Rita, HUD provided 

with disabilities. As part of these efforts, Louisiana’s 

Louisiana approximately $25.9 mil ion in disaster 

PSH program provides an affordable rental housing 

recovery funds for operating assistance, bridge rental 

resource that assists homeless persons with disabilities 

assistance, and technical assistance, along with $72 

and those at-risk of homelessness. In 2014, Louisiana 

mil ion in supportive services grants. HUD Disaster Funds 

created its comprehensive plan to end homelessness. 

are expected to end in early 2018, and most funding for 

The plan, Ma Maison, which means “my home,” outlines 

services is now reimbursed by Medicaid. Since 2007, the 

statewide policy priorities for ending homelessness. The 

PSH program has housed more than 2,300 of the most 

priorities are— 

vulnerable individuals with disabilities (TAC, 2012). 

1.  To end chronic homelessness by 2016.

LHC’s Qualified Al ocation Plan provides points to LIHTC 

2.  To prevent and end homelessness among veterans 

applications when those responsible for operating the 

by 2015.

tax-accredited projects agree to participate in the PSH 

program by al ocating 5 to 10 percent of the project’s 

3.  To prevent and end homelessness for families, youth, 

units to PSH-eligible applicants. In the 2017 QAP, LHC 

and children by 2020. 

plans to indicate that extra points will be awarded to 

4.  To set a path to ending all types of homelessness 

those projects al ocating up to 25 percent of the total 

(Sweazy, 2014). 

units to the 811 PRA program. In addition to LIHTC, LHC-

In addition, New Orleans participates in the Dedicating 

LHA administers several other local, state, and federal 

Opportunities to End Homelessness Initiative, along with 

housing programs with the following outcomes:

10 other U.S. communities with critical homeless rates. 

•  Between 2007 and 2012, it al ocated $75 mil ion in 

The Louisiana Housing Corporation 811 PRA program 

HOME funds to develop 125 affordable housing units.

operates in concert with the Dedicating Opportunities to 

•  The one-time, $34 mil ion allocation in Neighborhood 

End Homelessness Initiative, a part of the state’s long-

Stabilization funds developed 328 units of affordable 

term approach to eradicate and prevent homelessness.

housing.

The state’s approach to eradicating and preventing 

•  The Louisiana Housing Trust Fund 2007 allocation of 

homelessness includes providing a continuum of housing 

$25 mil ion developed 148 homeownerships and 174 

programs and services. The Louisiana Balance of State 

rental units. 

Continuum of Care (BoS CoC) program is the state’s 

housing and services organization covering rural areas 

Table 3.1 provides an overview of the other federal 

of the state not covered by a parish or city. BoS CoC 

housing programs administered in Louisiana. An 

provides funding for efforts to quickly rehouse homeless 

examination of the information in table 3.1 indicates that 

individuals and families and for efforts by nonprofit 

these programs serve a significant number of nonelderly 

providers to decrease homelessness. BoS CoC services 

disabled households.

include outreach, intake, assessment, emergency shelter 

Between 1997 and 2009, Louisiana Housing Authorities 

services, and PSH for people with disabilities. 

received 650 Non-Elderly Disabled Category 1 HCVs 

In addition to its goal of eradicating homelessness, 

(HUD, n.d.). NED Vouchers are available to those in 

Louisiana provides alternative, community-based housing 

eligible nonelderly households with disabilities that want 

options for inappropriately institutionalized persons 

to live in a community setting, regardless of whether they 

with disabilities. The Supreme Court’s 1999 decision in 

move from institutional settings. Supportive services are 

Olmstead v. L.C.  to enable people with disabilities to live in 

also provided to NED tenants.

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Chapter 3. Louisiana Section 811 Project Rental Assistance Program

Table 3.1: Louisiana Federal Housing Programs

Percent With 

Number of Household 

Percent Extremely 

Disabilities Among 

Percent All Persons 

Federal Program

Units Available

Members

Low Income

Head, Spouse Aged <62 

With Disabilities

Public Housing

19,872

41,921

66

27

19

Housing Choice Vouchers

55,664

12,1562

68

30

20

Moderate Rehabilitation

112

464

86

23

15

Project-Based Section 8

15,507

26,343

75

28

15

811/PRAC

959

973

80

97

94

PRAC = Project Rental Assistance Contract. 

Source: HUD (2016)

Rental Housing Market

Service Provision and Healthcare

Renter households comprise 36 percent of al  Louisiana 

households, and 23.5 percent of al  renter households 

Policy

are extremely low income (National Low Income Housing 

Historical y, Louisiana’s long-term care has been largely 

Coalition, 2016a). The rental markets in New Orleans and 

institutional. In the early 1990s, Louisiana had one of the 

along the Gulf are under intense pressure due to a loss of 

highest numbers of nursing homes and nursing home 

rental housing from the severe storms and high demand, 

residents per capita in the United States (Louisiana 

which in turn puts pressure on other rental markets in the 

Department of Health and Hospitals, 2013). In 2000, the 

state. New Orleans is the sixth worst city in the United States 

state began the process of “rebalancing” by increasing 

for renters; with a 9-percent hike in rents and a 1.5-percent 

spending on home- and community-based supports 

decline in income since 2009 (Woodward, 2015). The rental 

and services (Louisiana Department of Health and 

housing market in northern Louisiana, part of the 811 PRA 

Hospitals, 2013). Louisiana’s service and healthcare 

target area, is soft but has tightened since the beginning of 

policy is outlined in the state’s 2007 Plan for Choice in 

2012. Its estimated overall vacancy rate is 7.7 percent, which 

Long-Term Care (Plan for Choice) (Louisiana Department 

is lower than the overall state vacancy rate. 

of Health and Hospitals, 2007). This plan details how the 

Rental housing affordability is a serious concern in 

state intends to reform how long-term care services are 

Louisiana. A household paying more than 30 percent 

delivered.

of its household income for rent is considered cost 

Recent Changes Supporting Community Living

burdened. In Louisiana, 53 percent of renter households 

are cost burdened (Sorrel s, 2015). The affordability 

Recent changes in programs have supported Louisiana’s 

crisis is more severe for extremely low-income 

policy shift toward integrated community living through 

households, such as those served by the 811 PRA 

the provision of Medicaid-funded home- and community-

program. In January 2016, the National Low-Income 

based services. Medicaid data examination il ustrates 

Housing Coalition reported that nearly three out of 

these spending and funding changes. Between 2008 

four extremely low-income households were “severely 

and 2014, total Medicaid spending increased from 

cost burdened,” paying more than 50 percent of their 

about $6.1 bil ion to nearly $7.4 bil ion statewide, a 

income on rent (NLIHC, 2016b). The Coalition further 

20.5-percent increase (Eiken et al., 2015; KFF, 2017). 

reported a shortage of 107,438 units for extremely low-

Funding for overall LTSS increased from approximately 

income households in Louisiana and that, for every 100 

$2 bil ion in 2008 to $2.4 bil ion in 2013 (Eiken et al., 

extremely low-income renter households, only 35 units 

2015). Home- and community-based services, as a 

are both affordable and available (NLIHC, 2016a). These 

portion of LTSS, increased from 34 percent of LTSS in 

data make clear the need for 811 PRA rental subsidies 

2008 to 39.5 percent in 2013. The percentage al ocated 

for extremely low-income households that have persons 

to HCBS, however, is significantly below the 51.3-percent 

with disabilities.

national average (Eiken et al., 2015). Institutional funding 

decreased as a proportion of LTSS from nearly 66 percent 

in 2008 to 60.5 percent in 2013. 

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 3. Louisiana Section 811 Project Rental Assistance Program

Expansion of Medicaid 1915(c) HCBS Waivers

companion care, community integration and 

This policy shift away from institutionalization and 

development, housing stabilization transition, and 

toward integrated community living is evidenced by 

individual and family support.

LDH’s expanded services. With approval from the 

Olmstead Plans, Settlements, Consent 

Centers for Medicare and Medicaid Services (CMS), 

Decrees

LDH’s expanded its services in its Medicaid 1915(i) 

Plan for mental health, and its offerings through the 

As discussed previously in the Housing section, the 

1915(b) Waiver. Most importantly for 811 PRA, LDH was 

landmark Olmstead decision was the legal basis for the 

granted approval for the expansion of five 1915(c) Home- 

Barthelemy lawsuit.  Barthelemy was settled in 2009, 

and Community-Based Waiver amendments. These 

several years before the 811 PRA program. By the terms 

approvals resulted in increased services available to 811 

of the agreement, Louisiana increased its expenditures 

PRA program participants. 

on HCBS by $118M from 2009 through 2013. 

The following list provides short descriptions of the 

Although not part of the settlement agreement, the 

1915(c) waivers that LDH uses to provide support 

811 PRA program does play a role in helping Louisiana 

services to 811 PRA program participants. For a more 

accomplish its rebalancing efforts by providing rental 

detailed description of these services, please see the 

subsidies to 811 PRA program-eligible individuals to 

section titled Service Provision (Types, Transition Versus 

support their community living. Moreover, 811 PRA is 

Ongoing, by Target Population, Gaps.

completely in line with the state’s vision for long-term 

care reform as outlined in the state’s Plan for Choice. As 

•  Residential Options Waiver. This waiver provides 

noted in the proceeding section, the Louisiana 811 PRA 

a comprehensive set of ongoing and transitional 

program has three priority populations, two of which 

services for individuals with intel ectual disabilities, 

relate to institution related populations—those who are 

autism, and developmental disabilities. The Residential 

inappropriately institutionalized and those who are at-risk 

Options Waiver covers services that include day 

of institutionalization.

habilitation, respite care, assistive technology or 

specialized medical equipment and supplies, dental 

Population Served

care, supports for community living, environmental 

accessibility adaptations as wel  as transportation and 

To be eligible for the 811 PRA program, individuals are 

transition supports.

required to meet the fol owing 811 PRA program and 

local state requirements: (1) have a household member 

•  Community Choices Waiver. Community Choices 

with a disability and be receiving Medicaid services or 

provides a comprehensive set of services for 

other funded services; (2) need housing supports offered 

individuals with physical disabilities ages 21–64. 

by the 811 PRA program; (3) be extremely low income 

This waiver provides services that include caregiver 

(which means total annual household income cannot 

temporary support, assistive technology or 

exceed 30 percent of the AMI); and (4) be between the 

specialized medical equipment and supplies, home 

ages of 18 and 61 at time of admission. 

delivered meals, housing stabilization, monitored 

inhome caregiving, environmental accessibility 

Louisiana has further prioritized the populations it wil  

adaptations as well as nonmedical transportation and 

serve through the 811 PRA program. Persons who are (1) 

housing transition supports.

inappropriately institutionalized; (2) homeless persons; 

or (3) at risk of institutionalization or homelessness 

•  Supports Waiver.  This waiver provides day 

(including those persons living in transitional housing or 

habilitation, prevocational services, respite, 

those who are homeless).

support coordination, supported employment, 

housing stabilization service, and housing 

The 811 PRA quarterly report of 2015, the first year 

stabilization transition for individuals with 

of program implementation, indicates that of the 207 

intellectual disabilities, autism, and developmental 

households referred to the 811 PRA program, 50 percent 

disabilities ages 18 and older.

met the criteria of being at risk of homelessness and 

16.4 percent met the definition of being homeless. 

•  New Opportunities Waiver.  New Opportunities 

Only 5.8 percent of 811 PRA program applicants 

provides services to individuals with autism, 

were institutionalized and 9.7 percent were at risk of 

intel ectual disabilities ages 3 and older. Services 

institutionalization. Because the 811 PRA program 

include center-based respite, employment related 

application is available to the public via LDH’s website 

training, supported living, skil ed nursing, adult 

and many applications are submitted prior to screening 

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Chapter 3. Louisiana Section 811 Project Rental Assistance Program

for eligibility, 37 percent of the households had no 

list for a residential unit. The waiting list is organized by 

designated target population. Final y, the data showed 

parish and referrals to units are tracked by parish.

that 28 percent of applicants were categorized with 

a physical disability, 47 percent with a mental health 

Target Population Eligibility

disability, and 25 percent with an intel ectual or 

As noted previously, by the end of 2015, the 811 PRA 

developmental disability. 

quarterly report showed that 207 households had been 

referred to the 811 PRA program. Of these households, 

Outreach, Referral, and Application

more than 50 percent (104 households) met the state’s 

priority for being at risk of homelessness and 107 

Outreach, Referral, and Application Methods

households had a member with a mental health disability. 

The outreach, referral, and application process is 

However, of the 207 referrals, 121 were found ineligible 

centralized and managed by LDH’s PSH program unit. 

for the 811 PRA program with the large majority ineligible 

Serving the 811 PRA program, this PSH unit has an 

because they were not eligible for services. 

Outreach Implementation Team. Composed of staff 

Implications of Outreach, Referral, and 

from the Office of Behavioral Health, Office of Aging and 

Application Methods on Individuals Referred 

Adult Services, Office for Citizens with Developmental 

and Placed

Disabilities, Office of Public Health, Medicaid, and 

the Money Fol ows the Person program coordinator, 

Because the outreach, program application and eligibility 

Outreach Implementation Team oversees both state and 

determination, unit referrals, and waiting list management 

local outreach efforts. This team ensures that program 

are centralized, 811 PRA program staff can coordinate 

directors are aware of the program eligibility criteria and 

811 PRA program efforts efficiently. In contrast, LHA and 

available housing units. 

LDH administered the PSH program using a decentralized 

Regional efforts include— 

system previously that had many inherent flaws. 

Varying agency staffing levels, capacities, and program 

•  Identifying appropriate regional agency 

commitments made the former PSH program intake and 

representatives of the various target populations. 

eligibility process difficult both to manage and to achieve 

•  Establishing regional stakeholder teams 

overall consistency. Having a centralized process for the 

representative of the various populations.

811 PRA program, from outreach through unit referral, 

has resulted in an overall systemic improvement, per LHA 

•  Providing initial and ongoing briefing for regional 

staff. Therefore, once the 811 PRA program is up and 

stakeholder teams. 

ful y operational, the unit occupancy process should be 

State and regional teams also utilize CoC participants, 

smoother and more efficient than in the past.

advocates, and other stakeholder groups who work 

with individuals who have difficulty acquiring services. 

Housing Strategies

The PSH Unit monitors outreach efforts and eligible 

applicants on the waiting list.

Property and Unit Characteristics

However, because the 811 PRA program application is 

As of October 2015, Louisiana had two RACs and eight 

publicly available on the LDH website, some applications 

811 PRA program units; six units were unavailable. As 

come into the 811 PRA program prior to screening for 

of the end of 2015, 34 units were under RAC, 2 of which 

eligibility. As soon as an application is received, Medicaid 

were accessible to persons with mobility impairments, 

eligibility is determined. Once eligibility for one or 

and 32 units were not accessible. Of the 34 units, 18 

more of the services has been determined, LDH refers 

were one-bedroom units, the unit size that most 811 PRA 

individuals who meet the PSH requirements for the 811 

program applicants need. In addition, 14 two-bedroom 

PRA program based on the referral protocol established 

and 2 three-bedroom units existed under RAC. 

by LHA. 

Property Selection Methods and Financing

Within the eligible target populations, referrals are 

prioritized per the target population priorities previously 

PSH and 811 PRA units are identified and funded as part of 

listed in the section titled Comparison of Target 

the state’s LIHTC selection process. LHC utilizes the state’s 

Populations: Planned Versus Actual. LDH maintains the 

QAP to award additional points to developers that integrate 

database in the Yardi Voyager, or Yardi, system to track 

PSH units into their developments. As of the end of 2015, 

each applicant throughout the housing eligibility and 

of the 34 units under RAC in the 811 PRA program, all the 

selection process. Once determined eligible for the 811 

units were financed with LIHTCs, HOME funds, or both.

PRA program, the participant is placed on the waiting 

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Chapter 3. Louisiana Section 811 Project Rental Assistance Program

At the time of applying to the 811 PRA program, LHA 

Once a project is selected, a RAC is negotiated and 

expected that 811 PRA units would come from those 

executed between the LHA and the property owner 

“existing (already built)” and “new (under construction 

of the units. When the property is ready for program 

or to be built)” units awarded LIHTCs during the 2011 

participation, a RAC will be executed. The RAC initial term 

and 2013 funding rounds. Further, it was thought that 

is 20 years plus renewals. The RAC contains a 30-year use 

developers who had a positive experience developing 

agreement that requires units continue to serve extremely 

properties under the PSH program in the GO Zone would 

low-income individuals with disabilities. 811 PRA 

want to participate in the new areas. LHA expected 

properties receive local FMR for the 811 PRA units and are 

developers who had not exhausted their 25 percent set-

ensured housing vacancy payments for up to 60 days at 

aside to participate in the 811 PRA program. 

80 percent of the total monthly rent. Property owners or 

LHA anticipated that it could meet its 811 PRA unit goals 

managers are informed that 811 PRA program participants 

quickly by placing identified properties under RAC from 

are eligible to receive (1) financial assistance to pay the 

its 2011–2013 LIHTC and HOME inventories. However, the 

utility and security deposits and (2) supportive services 

long delay in HUD’s program implementation significantly 

and guidance from case managers. One of the housing or 

affected Louisiana’s 811 PRA production because several 

service providers certified under the PSH program assigns 

of the projects were already ful y rented by the time the 

these case managers.

grantee received its Cooperative Agreement. Furthermore, 

Implementation Schedule

LHA realized that it had underestimated the time it would 

take to educate and form relationships with the developer 

In October 2015, the properties in table 3.2 were either 

community in new regions. Obtaining developments 

under a RAC or had an application in process. 

for the 811 PRA program proved to be far more time-

Per its Cooperative Agreement, Louisiana had initial y 

consuming than LHA had anticipated. Also, at first, LHA 

expected that it would have 24 units under RACs in 2014 

found that fewer properties than anticipated were available 

with an additional 75 in 2015. With 34 units under RACs at 

that met program requirements. 

the end of 2015, Louisiana had not achieved its goals but 

LHA now thinks that it has a good pipeline of units and 

has many properties in the pipeline. As of the beginning 

can meet its program commitment by 2017. It is making 

of 2016, Louisiana expected to have more than 130 units 

some changes to its QAP too, which will increase 811 

under RACs by the end of the year.

PRA units. By increasing the points awarded for 811 PRA 

Rent and Subsidy Levels

participation from 5 to 10 percent, and eventual y from 10 

to 25 percent (the al owable maximum) in its 2017 or 2018 

Louisiana projected that the first 100 units available 

QAP, LHA expects to increase the pool of potential 811 

would be covered by five different FMRs. The state also 

PRA and PSH units more quickly.

expected to set initial rents to owners based on the 2012 

FMRs, increased annual y by 2.4 percent in accordance 

Property Selection Process

with Louisiana’s Operating Cost Adjustment Factor. In the 

The QAP requires developers pursuing PSH points to 

application for the 811 PRA program, Louisiana projected 

request a letter of support for their project from the 

that the average contract rent for year one would be $795, 

Executive Management Council. When a request is 

with an average monthly rental assistance payment of 

received, the council and its staff meet to assess the 

$673. The final budget signed for the 2012 Louisiana 811 

bedroom size(s, amenities, accessibility, and geographic 

PRA program differs slightly from the application amounts. 

location of the proposed units. LDH then designates 

The budget establishes an average contract rent of $813 

staff to conduct a site visit to the proposed property 

per unit per month, with $597 coming from 811 PRA 

to assess the surrounding environment and proximity 

program rental assistance and $216 from the tenant.

to public transportation. The Executive Management 

Unit Offers and Tenant Turnover

Council utilizes the information to determine whether to 

support the project for the 811 PRA program. LHC does 

Once deemed eligible for Medicaid and the 811 PRA 

not support the selection of projects that LDH determines 

program, an individual is placed on a waiting list. At the 

cannot be reasonably occupied by the 811 PRA program 

end of 2015, Louisiana had 72 households on the 811 

target population. The Executive Management Council 

PRA waiting list. When a unit becomes available, three 

makes the final decision about which properties are 

individuals on the waiting list are offered the opportunity to 

selected for the 811 PRA program after LHC decides 

view the unit. During 2015, 39 811 PRA-eligible participants 

which projects wil  receive LIHTCs.

were referred to units and seven units were occupied. 

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 3. Louisiana Section 811 Project Rental Assistance Program

Table 3.2 : Proper ties Under R AC or A pplication in Process

Property

Parish and City

Number of 811 PRA Units

Initial and Expected Occupancy Date

Austin Village

Morehouse

2

2016, 2017

Cypress Landing

Caddo, Shreveport

31

2015

Embassy House Apartments

Caddo, Shreveport

3

2016, 2017

Fairmont Towers

Caddo, Shreveports

60

2016, 2017

Renaissance at Al endale

Caddo, Shreveport

2

2015

Sycamore

Oachita, Monroe

3

2016, 2017

Villages at Eagle Point

Bossier, Bossier City

1

2016, 2017

PRA = Project Rental Assistance. RAC = Rental Assistance Contract. 

Source: Louisiana Housing Authority, Internal Report.

Application for a unit occurs at the property. Eligibility 

2.  Services for individuals with a developmental 

for a unit is determined by housing development’s owner 

disability who meet requirements for services 

or property manager. Property managers establish their 

provided by the Office for Citizens with 

own tenant selection plan, which includes admission 

Developmental Disabilities.

criteria. These criteria, however, must conform to 811 

3.  Services provided by the Office of Behavioral Health 

PRA program eligibility criteria and with Louisiana’s 

for individuals with a serious mental il ness including 

Housing First housing policy. The Housing First 

those with co-occurring disorders.

approach provides, without prerequisites, immediate 

access to PSH to individuals and families experiencing 

4.  Services for individuals with a chronic health 

homelessness. Formerly institutionalized or homeless 

condition, physical, sensory, or cognitive disability 

persons move directly into permanent housing units with 

whose conditions meet the requirements of “in need 

no requirement that they first agree to support services 

of PSH” but do not meet the threshold requirements 

or achieve a certain level of self-sufficiency. Intensive 

for long-term care services provided by the Office 

voluntary support services are offered to the program 

of Aging and Adult Services and whose disabling 

participant, aimed at helping the person maintain health 

condition emerged after the age of 22. 

and tenancy. A property owner or manager cannot reject 

These populations are the highest priority for LDH and 

a potential resident based on the resident not having 

its agencies. Although eligibility for one or more of the 

supportive services.

services is required, program participants have the right 

As of October 2015, no 811 PRA units had turned over.

to refuse services; service participation of individuals 

residing in 811 PRA program units is voluntary.

Service Provision and Coordination

Coordination of Services and Housing

Service Models

LDH coordinates services and housing. The 811 PRA 

LDH ensures services are available to assist the target 

project coordinator acts as the 811 PRA-PSH tenant 

populations with community living and for helping 

service manager and is the primary point of contact 

program participants comply with the rental lease for 

between LDH and property owners and managers. The 

the 811 PRA program unit. To be eligible for an 811 PRA 

coordinator communicates with property managers and 

program unit, applicants must have access, at the time of 

tracks program participants from referral to a housing unit 

admission, to one or more of the fol owing. 

through move-in and residency. Further, the coordinator 

works to foster good relationships between property 

1.  Services for individuals with a disabling chronic health 

managers, program participants, and service providers. In 

condition, physical, cognitive, or sensory disability 

the event of a dispute between a program participant and 

who meet requirements for services provided or 

a property manager, the coordinator manages the initial 

funded by the Office of Aging and Adult Services.

steps in the resolution process. Lastly, the coordinator 

conducts site visits, provides feedback, and makes 

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Chapter 3. Louisiana Section 811 Project Rental Assistance Program

recommendations to the 811 PRA management team on 

Support services are provided by agencies certified by 

ways to improve program administration and coordination. 

LDH and fall into four categories: (1) HCBS targeted for 

To ensure that 811 PRA program applicants can 

individuals with chronic or physical health disabilities 

successfully move into 811 PRA program units, LHA 

who meet the threshold for long-term care; (2) HCBS 

has committed $1.25 million in HOME Tenant-Based 

targeted primarily for individuals with developmental 

Rental Assistance during the initial 5-year 811 PRA 

disabilities; (3) community-based behavioral health 

grant period. The funds will provide security and 

services; and (4) services coordination for individuals 

utility deposit assistance to program participants who 

with long-term chronic health conditions or physical 

require additional assistance to secure an 811 PRA 

disabilities who need continuous and long-term support 

program unit. 

but do not yet meet the threshold for long-term care 

services.

Service Provision (Types, Transition Versus 

In addition to HCBS, LDH also provides the Louisiana 

Ongoing, by Target Population, Gaps)

Medicaid State Plan services, such as Community 

LDH administers Medicaid for the State of Louisiana. 

Psychiatric Support and Treatment (CPST) and 

Louisiana 811 PRA program participants have access to 

psychosocial rehabilitation. CPST are goal-oriented 

both the traditional Medicaid HCBS [1915(c) waivers] and 

supports and solution-focused interventions. These 

Louisiana’s Medicaid State Plan services. LDH operates 

services are intended to achieve goals or objectives 

the HCBS waivers listed in table 3.3, which has a detailed 

identified in the person’s individualized treatment plan. 

listing of the services available under each waiver. CMS 

CPST provides community and home-based case 

approved LDH’s five 1915(c) Home- and Community-

management services and access to behavioral health and 

Based Waiver amendments. These approvals resulted in 

medical supports, and il ness management skil s training. 

increased services to program participants.

Table 3.3 : Louisiana 1915 ( c ) HC B S Waiver s

1915(c) Waivers

Summary

Provides day habilitation, prevocational, home respite care, shared living services, support coordination, supported employment, assistive technology or specialized medical equipment and supplies, Residential Options Waiver 

dental, community living supports, companion care, environmental accessibility adaptations, host home, nursing, one-time transitional services, PERS, professional services, transportation and community access for individuals with developmental disabilities. 

Provides adult day health care, caregiver temporary support, support coordination, assistive 

devices and medical supplies (assistive technology), environmental accessibility adaptation, home delivered meals, housing stabilization, housing transition or crisis intervention, monitored inhome Community Choices Waiver

caregiving, nonmedical transportation, nursing, personal assistance services, skil ed maintenance therapy, transition intensive support coordination, and transition services individuals with physical disabilities ages 21–64.

Provides day habilitation, habilitation, prevocational services, respite, support coordination, Supports Waiver 

supported employment, housing stabilization service, housing stabilization transition, PERS for individuals with developmental disabilities ages 18 and older.

Provides center-based respite, day habilitation, employment related training, supported employment, supported living, skilled nursing, specialized medical equipment and supplies, adult companion care, community integration and development, environmental accessibility adaptations, housing New Opportunities Waiver

stabilization, housing stabilization transition, individual and family support, one-time transitional, PERS, professional services, remote assistance, substitute family care for individuals with developmental disabilities ages 3 and older.

Provides crisis stabilization, independent living and skills building, parent support and training, Coordinated System of Care

short-term respite, youth support and training for individuals with serious emotional disturbances ages 0–17 and individuals with mental illness ages 18–21.

HCBS = home- and community-based services. PERS = Personal Emergency Response Systems.

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Chapter 3. Louisiana Section 811 Project Rental Assistance Program

Psychosocial rehabilitation services assist individuals 

By exchanging emails daily with LDH PSH staff and 

with mental il ness by providing them with support 

participating in monthly meetings with the Executive 

services that mitigate functional deficits and 

Management Council, LHA assesses program progress 

interpersonal or environmental barriers associated with 

that is reported to HUD. Using TRACS and the LOCCS, 

mental il ness. Activities are designed to meet the goals 

LHA accepts, processes, and makes payment to 

outlined in each person’s individualized treatment plan. 

property owners or managers in the 811 PRA program. 

The psychosocial rehabilitation intent is to restore the 

As mentioned in the Outreach, Referral, and Application 

ful est possible integration of individuals as active and 

Methods section, 811 PRA program staff use Yardi to 

productive members of his or her family, community, or 

track each 811 PRA program applicant through the 

culture with the least amount of ongoing professional 

housing referral, selection, and placement process. 

intervention.

Some LDH staff members stated that Yardi is difficult 

Pretenancy services (known as transitional services 

to navigate and some methods are cumbersome. Staff 

in other states) are available to all 811 PRA and PSH 

reported maintaining their own spreadsheets to track 

program participants, regardless of the type of waiver 

program participants. Yardi is also the financial system 

under which they receive services. Participation in 

used to generate payments to owners in the PSH 

services voluntary and services are available from prior 

program. Owners are required to utilize Electronic Funds 

to move-in through occupancy, if needed and desired. 

Transfer to receive payment.

The types of service provisions vary based on each 

individual’s need and Medicaid eligibility. LDH certified 

Successes and Challenges

agencies receive financial support from other sources 

Building from the design, organizational structure, 

and offer additional transitional services on top of the 

and management of the GO Zone PSH program, 

pretenancy services provided by Medicaid waivers. 

LHA and LDH have extensive experience starting up 

However, the availability and depth of coverage of these 

and implementing a supportive housing program. 

additional resources vary greatly from one provider to 

Nonetheless, 811 PRA program staff and their partners 

another.

expect the startup phase of the program to require a 

2013 811 PRA Application

significant time and effort to put all program components 

in place. The fol owing sections provide the successes of 

Louisiana decided not to pursue additional 811 PRA 

and chal enges to program implementation as reported 

program assistance in the 2013–2014 funding round. The 

by 811 PRA program staff and their partners.

state wanted to ful y implement its 2012 program first. 

LHA confirmed that it approved that decision, because 

Successes

program implementation has been challenging.

Program experience and commitment. Despite 

chal enges in 811 PRA program implementation, 

Leveraging

Louisiana’s experience in PSH program administration 

To provide rental assistance to extremely low-income 

gave the state a head start because some program 

individuals with disabilities, LHA secured 125 housing 

components were already developed under the PSH 

choice vouchers from three local housing authorities—

program. By the end of 2015, 811 PRA program staff 

Calcasieu, East Baton Rouge, and Shreveport. No 

thought that they had “final y turned a corner” in program 

vouchers have been leveraged yet. LHC is working 

implementation and could make much more progress in 

on Memorandums of Understanding (s) with the three 

2016. In addition, the 811 PRA program staff are highly 

housing authorities.

committed to achieving program success. From the 

most senior staff person to the service providers, all 

Program Administration, 

stakeholders connected with the 811 PRA program have 

voiced their commitment to “doing whatever it takes.”

Assessment, Information Systems, 

811 PRA program staff’s relationship with property 

and Data Infrastructure

owners and managers.  Both LHA and LDH staff feel 

LHA conducts daily program administration. Biweekly, 

that their relationship with property owners or managers 

LHA and LDH meet to discuss 811 PRA program 

participating in the program is strong. Because staff have 

implementation. In addition, LHA and LDH hold biweekly 

established and maintained a strong relationship with 

cal s with interested stakeholders. 

property owners or managers in the program, 811 PRA 

program staff and property managers worked patiently 

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 3. Louisiana Section 811 Project Rental Assistance Program

through all program implementation aspects, including 

System by property owners. Thus, the actual amount 

the long delay in the start of the program and in payment 

of staff time required to implement the program has 

of security deposits and rent.

greatly exceeded what LHA and LDH anticipated in their 

Units under RAC and occupied units. Despite some 

application to the 811 PRA program.

initial difficulty obtaining participating properties in the 

Attracting property owners and developers. 

target areas of the state, Louisiana has executed three 

LHA experienced some difficulty attracting property 

Rental Assistance Contracts with a total of 34 units. 

developers and owners to the 811 PRA program. LHA 

In addition, 7 of those units were occupied at the end 

reported that it takes multiple interactions to convince 

of 2015. With all 2015 grantee production considered, 

property owners or managers to become interested 

Louisiana was one of only four grantees able to 

in applying to the program. LHA staff members have 

house more than one occupant during the first year of 

strong connections to the development community in 

program implementation. 

the northern and central parts of the state because of 

Providing gap funding to expedite unit occupancy. 

their involvement with other housing programs. Despite 

To ensure that 811 PRA program applicants can 

these wel -developed relationships, LHA staff reported 

successful y move into 811 PRA program units, LHC 

that the learning curve for the 811 PRA program has been 

committed $1.25 mil ion in HOME Tenant-Based Rental 

surprisingly steep for developers or owners. The time it 

Assistance during the initial 5-year 811 PRA grant 

has been taking for (1) program staff to educate property 

period. This funding will help remove an impediment to 

owners or managers about the program and (2) property 

community-based housing by covering the cost of 811 

owners or managers to apply and be accepted into the 

PRA tenant security and utility deposits not covered by 

program has affected the number of units available for 

811 PRA or other funds. 

the program. 

The development community in the northern and central 

Challenges

parts of the state reported wanting to wait to see how 

Delay in program startup.  811 PRA implementation 

the program is being implemented before participating. 

by the grantee was impeded by the delay in HUD’s 

In addition, because of the demand for rental housing, 

implementation of the 2012 program, including the delay 

property owners and managers can receive higher 

in the execution of the Cooperative Agreement. Louisiana 

market rate rent for their units than they would receive 

had identified units for availability in 2013 through 

under the 811 PRA program. Despite some initial 

2014 that it planned to include in its 811 PRA program. 

hesitancy, developer participation has increased in 

However, by the time the Cooperative Agreement was 

subsequent QAP funding rounds.

final y issued, these projects were no longer available. 

Unit size restrictions and not having enough of the 

Further, these delays affected the grantee’s ability to 

housing units that best meet the needs of program 

develop a waiting list. The grantee was concerned that 

participants. Most 811 PRA program participants on 

given the target populations’ vulnerability, applicants 

the waiting list for housing need a one-bedroom unit. 

would have to wait too long for housing assistance.

811 PRA program staff reported that finding property 

The amount of time program implementation is 

owners or managers with existing one-bedroom units 

requiring. Although the 811 PRA program is a part of the 

has been difficult. Program management would find it 

existing PSH structure, the 811 PRA management team 

very helpful if the program received a waiver to enable 

had to reengineer processes and structures to meet 811 

single-person households to lease two-bedroom units at 

PRA requirements and to expand its work into areas 

the one-bedroom payment standard. 811 PRA program 

outside of the GO Zone. 811 PRA program staff greatly 

staff also stated that property owners or managers with 

underestimated the time it would take to implement a 

one-bedroom units have been interested in program 

program with the complexity of the 811 PRA program. 

participation. However, they were ineligible, because no 

support services were nearby, as would be the case in 

All stakeholders, from service agency staff to 

rural parts of the state. However, it is important to note 

developers, have required 811 PRA program training 

that LHC is changing its QAP to give preference to one-

because it is a new program, with new guidelines, 

bedroom units for the 811 PRA program. This change will 

processes, and requirements. Per LHC staff, the 

result in an increase in the unit size needed for the 811 

most chal enging procedures and requirements for 

PRA program as units become available in the future.

stakeholders to acclimate were related to Medicaid 

waiver bil ing for service agencies, and payment 

Coordinating LIHTC timing to achieve 811 PRA 

requests in Tenant Rental Assistance Certification 

occupancy. A concern expressed by LHA was that 

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Chapter 3. Louisiana Section 811 Project Rental Assistance Program

significant time is needed to prepare and house 

applicants from the target populations, such as moving 

institutionalized persons to a community rental unit. The 

time required to move an applicant to a community-

based unit does not always coincide with the deadlines 

imposed by Low-Income Housing Tax Credit regulations, 

such as occupancy deadlines. Even the provision of 

vacancy payments does not necessarily solve this 

problem, because investors will accept only actual 

occupancy of the units as meeting the regulatory 

occupancy requirement. A payment in lieu of occupancy 

does not meet initial LIHTC occupancy requirements. 

Such situations can result in a unit being fil ed by a non-

811 PRA program tenant, which means that the unit is 

unavailable for an 811 PRA program tenant until vacated 

at turnover.

811 PRA program sustainability. LDH voiced concern 

about the long-term sustainability of the 811 PRA 

program. Before execution of the LDH-OCD Cooperative 

Endeavor Agreement, LDH brought up the sustainability 

issue. The administrative costs of the 811 PRA program 

far exceed the amount provided under the administrative 

portion of the 811 PRA grant. The Louisiana 811 PRA 

program depends heavily on MFP funds for operational 

support. On June 26, 2015, CMS issued guidance on 

coverage of housing-related activities and services 

for individuals with disabilities. It is crucial that LDH 

understands how it can use the provisions of the CMS 

guidance to fill funding gaps on the service side between 

now and until MFP ends and funds are exhausted. 

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

Maryland Section 

finance agency. DHCD administers affordable housing 

programs throughout Maryland. These programs include 

811 Project Rental 

federal LIHTC, Federal Housing Administration Risk 

Sharing Program, HOME, Community Development 

Block Grant, and HCVs, as well as state-funded housing 

Assistance Program

development and rental assistance programs such as 

the Rental Housing Program, and Partnership Rental 

Housing Program (Partnership). DHCD also serves as a 

Performance Based Contract Administration (PBCA) for 

HUD, and is a public housing agency (PHA) operating 

Introduction

the HCV, formerly Section 8) program primarily in 

Maryland’s rural jurisdictions. 

In 2012, HUD awarded the Maryland Department of 

DHCD operates a wide range of programs to assist 

Housing and Community Development (DHCD), in 

persons with disabilities. Four of them are (1) 

partnership with the Maryland Department of Health and 

Homeownership for Individuals with Disabilities Program; 

Mental Hygiene (DHMH) and Maryland Department of 

(2) Individuals with Disabilities and Special Needs (IDSN) 

Disabilities (MDOD), $11,229,308 in Section 811 Project 

program; (3) Bridge Subsidy Program; and (4) Harry and 

Rental Assistance program funds to support 150 units 

Jeanette Weinberg Foundation’s Maryland Affordable 

with rental assistance. DHCD proposed to make available 

Rental Housing Opportunities for Persons with 

150 units of PSH from existing housing stock, as well as 

Disabilities Initiative (Weinberg Apartments Initiative). 

units from newly constructed or renovated properties. 

Together, these varied programs increase PSH 

These units will be in the Baltimore and Washington 

opportunities in the community. DHCD incentivizes 

metropolitan areas. 

development of affordable rental housing for persons 

Evaluators conducted a site visit in November 2015 

with disabilities through the state’s QAP. DHCD also 

to learn about Maryland’s 811 PRA implementation 

finances group homes and the Special Housing 

experiences. At the end of 2015, 13 units were available 

Opportunities Program, which enables persons with 

under RAC and 4 units were occupied. 

disabilities who elect to live in a group living situation. 

Taken together, these DHCD programs have produced 

Grantee Partnership, Organizational 

thousands of units of affordable housing for persons 

Structure, and Management

with disabilities.

Overview

Maryland Department of Health and Mental 

Hygiene

DHCD is the primary applicant and grantee for 811 

PRA and has partnered with DHMH and MDOD for full 

DHMH is the state Medicaid agency. DHMH operates 

program implementation and delivery. The division of 

the Medicaid program and oversees the Developmental 

responsibilities is based on areas of functional and 

Disabilities Administration, Behavioral Health 

specialized capabilities. This section begins more 

Administration,6 and the MFP Demonstration program. 

broadly with an overview of each agency, its role within 

DHMH operates nine home- and community-based 

the state, and the relevant programs they administer. 

Medicaid waivers, including six that serve adults with 

The section then reviews the specifics of the partnership 

disabilities as an alternative to institutionalization.

and each agency’s roles and responsibilities for the 811 

•  Community Pathways Waiver.

PRA program. 

•  Home- and Community-Based Options Waiver.

Maryland Department of Housing and 

•  Brain Injury Waiver.

Community Development

•  Medical Day Care Waiver.

DHCD is the state agency charged with promoting 

•  Community First Choice. 

homeownership, increasing and preserving affordable 

rental housing, as well as preventing and eliminating 

•  Community Personal Assistance Services. 

homelessness in Maryland. DHCD is the state’s housing 

These waivers are described in more detail in the section 

6  

In July 2014, Mental Hygiene Administration merged with the Maryland Alcohol and Drug Abuse Administration to form the Behavioral Health Administration.

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

titled Service Provision and Healthcare. Community 

continued on as they participated in the Governor’s 

Pathways Waiver, Home- and Community-Based Options 

Commission on Housing Policy. MDOD’s Secretary served 

Waiver, and Brain Injury Waiver are Medicaid-funded 

as Chair of the Commission’s Affordable and Accessible 

services. Community First Choice and Community 

Housing for Individuals with Disabilities Subcommittee. 

Personal Assistance Services are services provided by 

DHCD, DHMH, and MDOD worked on a few initiatives 

the Maryland State Medicaid Plan. DHMH also provides 

together, including the Real Choice Systems Change 

community-based supports to individuals with behavioral 

Grant effort described previously, the Bridge Subsidy 

health disabilities. In 2011, DHMH provided psychiatric 

Program and the Weinberg Apartments Initiative. 

rehabilitation services to 2,851 individuals and other 

supportive services to 8,686 people.

Design and Structure of Maryland’s 811 PRA 

Maryland’s MFP program has transitioned 1,260 people 

Program

out of institutions to home- and community-based 

Eligible 811 PRA applicants will lease units within 

settings. MFP has experienced a very low reinstitutional 

properties supported with federal resources, including 

rate of less than 6 percent since it began. 

LIHTC, private activity bonds used for multifamily 

development (MF-Bond), Federal Housing Administration 

Maryland Department of Disabilities

Risk Sharing Program, and HOME, as well as state 

MDOD’s mandate coordinates the delivery of state 

resources such as Maryland’s own Rental Housing 

services to people with disabilities to improve outcomes. 

Program (RHP), Partnership Rental Housing Program 

Established in 2004, MDOD is the first state cabinet 

(Partnership), and other resources. 

level department of its kind in the United States. This 

Rental assistance is provided to individuals with 

department works to remove barriers for people with 

disabilities who are making or are ready to make the 

disabilities and create new opportunities in education, 

transition to integrated housing arrangements. 811 

employment, transportation, community living and 

PRA provides this population access to housing units 

housing. MDOD and DHMH have a long history of 

that may have been previously out of reach. Individuals 

partnership. In addition to the peer outreach and support 

in the 811 PRA program are automatical y placed on 

services component of the MFP program, MDOD 

the HCV waiting lists of DHCD and other PHAs who 

operates several federal grants for DHMH, such as the 

have partnered with DHCD, DHMH, and MDOD for the 

Medicaid Infrastructure Grant.

program. If an 811 PRA participant is offered an HCV, he 

MDOD initiated the Statewide Taskforce for Affordable 

or she may not have to move from the unit. 

Housing to take advantage of additional private, public-

Extremely low-income nonelderly adults with disabilities 

sector, and federal funding opportunities in 2010. In 2011, 

between 18 and 61 years old who are enrol ed in 

this effort resulted in DHMH’s successful application for 

Medicaid are general y eligible for 811 PRA. However, 

the Building Sustainable Partnerships for Housing Real 

the Maryland 811 PRA program established priority 

Choice Systems Change Grant funded by CMS. MDOD 

target populations. This prioritization is discussed in 

co-chaired the Advisory Group for Real Choice Systems 

greater detail in the section titled Population Served of 

Change Grant with DHMH. The project was instrumental 

this report.

in providing program infrastructure to implement a 

permanent supported housing program such as 811 PRA. 

The organizational structure is modeled after the 

MDOD also directly manages the Maryland Attendant 

Bridge Subsidy Program. This structure is a centralized 

Care Program, the Maryland Technology Assistance 

model wherein responsibilities for enrol ment, waitlist 

Program, and the Constituent Service Program, which 

management, and referrals to units for the 811 PRA 

helps people with disabilities navigate the state service 

program are performed by one entity. In Maryland, these 

system and increase their ability to self-advocate.

responsibilities are held by MDOD. DHCD sources the 

units, and DHMH and others provide support services. 

Partnership

Supportive services for persons in the 811 PRA program 

The DHCD, MDOD and DHMH col aboration started in 

are mainly provided by DHMH. DHMH provides several 

2001 as staff from all three agencies worked together 

voluntary support services available to 811 PRA 

on the Community Access Steering Committee7 and 

participants through 1915(c) Medicaid waivers. These 

7 

A 2001 Executive order established the Community Access Steering Committee to explore Olmstead-related policy actions. This committee is discussed in more detail in the section titled Service Provision and Healthcare.

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

services are described in detail in the section titled 

program requirements. DHCD is also responsible for 

Service Provision and Healthcare. However, MDOD also 

overall program administration including reporting to HUD.

made the Attendant Care Program available to 811 PRA 

Maryland Department of Health and Mental Hygiene 

participants. 

responsibilities.  Through its contracted support service 

811 PRA Roles and Responsibilities

providers, DHMH will enroll eligible applicants on the 

811 PRA waiting list into voluntary supportive services. 

Each agency’s responsibilities for the program effectively 

DHMH also provides long-term supports and services 

fold into its existing operations. Table 4.1 provides a 

to program participants, including case management 

summary of each organization’s responsibilities. 

services that are designed to assist recipients in 

Maryland Department of Housing and Community 

maintaining good tenancy in the units. DHMH provides 

Development responsibilities.  DHCD’s responsibilities 

several a number voluntary support waiver and state plan 

are centered around housing. DHCD is charged with 

services available to tenants in 811 PRA Demo units who 

sourcing and managing housing units for the 811 PRA 

are eligible for Medicaid-funded services. These services 

program. However, it is important to note that although it 

are described in detail in the Service Provision and 

is ultimately DHCD’s responsibility to select units for 811 

Healthcare section. 

PRA funding, it works diligently with DHMH and MDOD 

DHMH, in col aboration with MDOD, established 

in sourcing and selecting units for the program. The 

memorandums of understanding with the six centers 

three agencies engage in weekly dialogue to ensure units 

for independent living in Maryland. This partnership 

sourced are meeting the service needs and geographic 

is designed to ensure that individuals in the target 

preference of the 811 PRA program applicants. DHCD 

populations who do not have case management as part 

modified its QAP application process to incentivize the 

of their service package, or who lose Medicaid eligibility 

participation of developers seeking financing for projects 

during tenancy, have access to community services and 

in the 811 PRA program. These efforts are discussed in 

supports to ensure successful tenancy. These supports 

more detail in the section titled Financing.

and services include independent living training and 

DHCD also creates, executes, and monitors all RACs, 

counseling; information and referral (designed to identify 

including use agreements and other contractual 

resources, services, and service providers in public, 

documents. DHCD is charged with making rental 

private and community organizations that can assist 

assistance payments to property owners and conducting 

living independently); individual and systems advocacy; 

site visits to 811 PRA units to ensure compliance with 

and peer counseling. 

Table 4.1: Mar yland 811 P R A Program Division of Responsibilities

DHCD

DHMH

MDOD

•  Identify and finance eligible units for 811 PRA 

•  Make available Medicaid services.

•  Manage waiting list

program.

•  Execute Rental Agreement Contracts with property  •  Monitor performance of support service providers. •  Conduct outreach to 811 PRA eligible individuals.

owners.

•  Outreach to developers, landlords, and property 

•  Outreach, training, and technical assistance to 

•  Manage referrals to 811 PRA units.

owners.

support service providers. 

•  Monitor 811 PRA unit occupancy and compliance 

•  Assist in training housing and support services 

•  Assist DHCD in outreach to developers or landlords 

with eligibility requirements.

providers.

or property owners.

• 

• 

• 

Collect and report data on service delivery, costs, 

Provide education, training, and technical support 

Make rental payments to property owners.

and outcomes. 

to housing and support service providers.

•  Collect and report required occupancy and 

•  Assist in program evaluation and data collection.

•  Assist in program evaluation and data collection.

financial information.

•  Ongoing support and communication with DHMH, 

•  Assist in providing education, training and 

•  Ongoing support and communication with DHMH, 

MDOD, housing providers, and support services 

technical support to housing and support service 

MDOD, housing providers, and support services 

providers.

providers.

providers.

DHCD = Maryland Department of Housing and Community Development. DHMH = Maryland Department of Health and Mental Hygiene. MDOD = Maryland Department of Disabilities. PRA = Project Rental Assistance.

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

DHMH and MDOD will provide housing training and 

•  Quality and compliance specialist 1 (0.1 FTE on 811 

technical assistance to The Center for Independent 

PRA).

Living staff and Medicaid-funded case managers across 

•  Quality and compliance specialist 2 (0.1 FTE on 811 

all support services agencies to support the tenancy 811 

PRA).

PRA program participants.

The MFP program director helps MDOD problem solve 

Department of Disabilities responsibilities.  MDOD’s 

and troubleshoot issues with the pipeline of moving 

role is integral to the 811 PRA program. MDOD staff 

individuals out of institutions and into integrated housing. 

manage the daily operations of the 811 PRA program. 

The housing director provides technical assistance and 

For example, MDOD staff handle application requests, 

training to housing providers as well as support to service 

manage the waiting list and oversee the referral 

providers. The housing specialist provides technical 

process to 811 PRA units. Also, MDOD staff ensure that 

assistance to supports planners regarding enrol ment and 

available units are tracked in the system and that eligible 

service provision standards. 

applicants are notified about available units. MDOD also 

provides training to support services providers. 

DHMH has two quality and compliance specialists for 

MFP who contribute part of their time to 811 PRA. The 

Program Staffing

quality compliance specialists monitor al  the transitions 

In al , the program operates with a total of 6.75 ful -time 

from nursing facilities, including 811 PRA participants. 

equivalents across al  positions. DHCD contributes 2.15 

The housing specialist, together with the quality and 

FTE, and DHMH contributes 1.45 FTE (this staff excludes 

compliance specialists, work col aboratively to ensure 

Projects for Assistance in Transition from Homelessness, 

that individuals successfully move into 811 PRA units.

or PATH, and MFP staff). MDOD contributes the most staff 

MDOD has the most staff committed full time to 811 PRA. 

time to the 811 PRA program with 3.2 FTE staff assigned.

Of the four staff assigned to 811 PRA, two spend most of 

DHCD’s responsibilities for the 811 PRA program are very 

their time on the program. Two of the positions are funded 

well interwoven into its staff’s current responsibilities. 

by MFP funds through DHMH via a memorandum of 

As such, at DHCD only the project manager spends 

understanding. MDOD staff working on 811 PRA are—

the most time on the 811 PRA program. All other team 

•  Chief of staff (0.1 FTE on 811 PRA).

members spend a small amount of time on the 811 PRA. 

•  Program director (0.4 FTE on 811 PRA).

The core team at DHCD working on 811 PRA include—

•  Housing program liaison (0.85 FTE on 811 PRA).

•  Program director (0.1 FTE on 811 PRA).

•  Waiting list manager (0.9 FTE on 811 PRA).

•  Project manager (0.75 FTE on 811 PRA). 

DHCD, DHMH, and MDOD will use their existing 

•  Grants manager (0.2 FTE on 811 PRA).

infrastructure and processes to manage the 811 PRA 

•  Contract administrator (0.2 FTE on 811 PRA).

program. Maryland estimates the 811 PRA program wil  

•  PHA administrator (0.1 FTE on 811 PRA). 

cost the agencies an estimated $2 mil ion to operate. 

Meanwhile, only $831,800 of the 811 PRA program funds 

The program director oversees DHCD staff work 

can be used for administrative costs. Agencies must 

dedicated to 811 PRA and the Project Manager is the most 

leverage funds from other sources to cover the gap. As 

heavily involved. The Project Manager is the primary point 

noted previously, DHMH and MDOD staff working on 

of contact at DHCD for 811 PRA and works with property 

the 811 PRA program are funded primarily through MFP 

owners to ensure RAC execution. The Grants Manager 

funds with some support coming from Medicaid funds. 

assists with grant reporting and communications. The 

DHCD is mainly using internal resources to support its 

Contract Administrator ensures that rent payments are 

commitment to the 811 PRA program. 

delivered on time and paid accurately. 

DHMH staff working on 811 PRA are ful y dedicated to MFP. 

State Context: Housing Programs

Therefore, even though they contribute only a portion of their 

time to the 811 PRA, their daily work is completely aligned 

Financing

with 811 PRA. DHMH staff working on 811 PRA include—

Under Maryland’s QAP, property developers who 

•  MFP program director (0.5 FTE on 811 PRA).

receive funding for family projects from DCHD are 

required to target and market 5 percent of their units for 

•  MFP housing director (0.5 FTE on 811 PRA).

persons with disabilities with incomes at 60 percent or 

•  MFP housing specialist (0.25 FTE on 811 PRA).

below of Area Median Income. These requirements are 

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

in place for at least 60 days after the property is ready 

○ Providing tenant service packages.

for occupancy. 

○ Leveraging nonstate funds.

DHCD modified its QAP to encourage property developers 

○ Being near good job, transportation, educational, 

to participate in the 811 PRA program. Property developers 

and recreational opportunities.

have an opportunity to earn bonus points in their 

application if they agreed to restrict up to 25 percent of 

○ Sponsorship with demonstrated development and 

the units in the property for persons with disabilities who 

management ability.

have incomes at or below 50 percent of AMI. Furthermore, 

•  The Partnership Rental Housing Program finances 

property developers must hold this restriction for at least 

affordable housing projects, by local governments 

90 days after the property reaches 80 percent occupancy.

or PHAs, for households below 50 percent of the 

To create a pipeline of eligible properties for the 811 PRA 

statewide median income. The Partnership Rental 

program, DHCD used its LIHTC al ocation, as well as 

Housing Program may also be used by nonpublic 

other federal and state financing programs, to catalyze the 

entities to create permanent supportive housing for 

creation of 811 PRA units in the state. The fol owing is a list 

persons with disabilities or special needs (IDSN units) 

of DHCD’s affordable rental housing financing programs.

at 30 percent of AMI. Typical y, IDSN units do not 

exceed 10 percent of the units in a project. 

•  DHCD receives about $13 mil ion in 9-percent LIHTC 

annual y. LIHTCs are awarded on a competitive 

•  The Rental Housing Works initiative and the Maryland 

basis, typical y with State Rental Housing funds. In 

Housing Rehabilitation Program provides financing 

addition, projects financed with tax-exempt bonds 

to create or preserve rental housing with federal, 

may also be eligible for LIHTCs (4 percent) outside of 

state, or local affordability requirements. The 

the competitive process. LIHTC projects are rent and 

Rental Housing Works initiative and the Maryland 

income restricted for 30–40 years. DCHD monitors 

Housing Rehabilitation Program are primarily used in 

these properties regularly. 

conjunction with the Multifamily Bond Program. 

•  The Multifamily Bond Program provides below-market 

Supportive Housing Programs

construction and permanent financing for affordable 

DHCD, DHMH, and MDOD have worked on several PSH 

rental housing. It finances new construction, 

programs under the umbrella of Maryland Partnership for 

acquisition, and rehabilitation of existing housing. 

Affordable Housing. The group has operated the Bridge 

•  The HOME Investment Partnerships Program is a 

Subsidy Program and the Weinberg Apartments Initiative 

federal program that provides funds to state and local 

for several years. Both programs serve target populations 

governments to promote affordable housing activities. 

like that of 811 PRA. Moreover, both programs are 

DHCD sets aside a portion of its annual al ocation 

designed and implemented very similarly to 811 PRA.

to be awarded competitively with LIHTC and Rental 

Bridge Subsidy Program was one of the Governor’s 

Housing Funds. 

Commission on Housing Policy’s recommendations. 

•  State Rental Housing Funds is a financing program 

The Bridge Subsidy Program is a tenant-based rental 

designed to spur the creation of new affordable 

assistance program designed to provide housing for 

rental housing units. These funds can also be used 

extremely low-income persons with mental or physical 

to substantial y rehabilitate existing affordable rental 

disabilities. To be eligible, individuals must be at least 18 

housing stock. The program is compatible with tax-

years old, have an annual income of $15,000 (or less), 

exempt bond financing, LIHTCs, and other private 

and receive Supplemental Security Income or Social 

or public funds. Rental housing funds are awarded 

Security Disability Insurance. 

competitively, typical y in conjunction with LIHTCs. All 

Individuals in the Bridge Subsidy Program are given 

projects must be in Priority Funding Areas. For-profit, 

preference in a participating PHA’s HCV waiting list. 

nonprofit, and public entities submit applications, 

Bridge Subsidy Program participants receive rental 

which are evaluated against criteria set forth in 

assistance payments until they receive HCVs. Maryland 

Maryland’s Qualified Allocation Plan including—

has successful y implemented two versions of a Bridge 

○ Restricting units to tenants with incomes below 60 

Subsidy Program, 2006 and 2010, respectively. Through 

percent of AMI.

2013, Bridge Subsidy Program had 130 recipients. 

○ Restricting units to low-income tenants for more 

Maryland secured an additional $2.6 mil ion in funding 

than 40 years.

through MFP Rebalancing Initiatives to implement a third 

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

version of this program in 2014. The 2014 Bridge Subsidy 

served by six major federal y funded housing programs. 

Program provides 3 years of rental assistance payments 

HCVs is Maryland’s largest federal housing program. It 

to individuals transitioning from institutions to the 

accounts for 51,796 units, which is 45 percent of the total 

community. Maryland anticipates serving an additional 

units (114,730) made available by federal programs in 

94 households in the third cohort.

the state. A significant number of households receiving 

The agencies also collaboratively administer the Weinberg 

HCVs are headed by a nonelderly person with a disability. 

Apartments Initiative, which began in 2011 and is funded 

Moreover, table 4.2 shows that 33 percent of Section 8 

by a Harry and Jeannette Weinberg Foundation grant. 

recipients and roughly 4 out of 10 households (39 percent) 

The Weinberg Apartments Initiative creates project-

in public housing are also headed by a nonelderly person 

based housing for individuals with disabilities and their 

with a disability. In addition, Maryland has 1,422 NED 

households. Weinberg Apartments Initiative units have 

Vouchers, 112 of which are Category 2.

40-year use agreements. Through 2013, 20 units have been 

Service Provision and Healthcare

created through this initiative with $2 mil ion in funding.

DHMH administers Medicaid for Maryland. Maryland 

DHCD also administers Non-Elderly Disabled Category 1 

811 PRA program participants have access to both 

and 2 vouchers. NED Category 1 vouchers are designed 

the traditional Medicaid home- and community-based 

to provide nonelderly individuals with disabilities with 

services [1915(c) waivers] as well as Maryland’s expanded 

an opportunity to obtain affordable community-based 

Medicaid State Plan. DHMH operates the HCBS waivers 

rental housing; NED 2 vouchers are targeted to persons 

listed in table 4.3, with a detailed listing of services 

with disabilities currently residing in nursing homes or 

available under each waiver.

other healthcare institutions who want to transition to 

community living. Through 2009, Maryland received 1,310 

Community Pathways Waiver: serves 20,000 persons with 

NED 1 vouchers and 112 NED Category 2 vouchers. 

intel ectual and developmental disabilities. Home- and 

Community-Based Options Waiver: serves 3,943 adults 

Both DHMH and MDOD work closely with supports 

18 and older who meet nursing facility level of care.8 Brain 

planners or case managers to identify eligible participants 

Injury Waiver: assists 49 adults with traumatic brain injury 

for the Bridge Subsidy Program and Weinberg Apartments 

acquired after age 22. Medical Day Care Waiver: serves 

Initiative. They also provide voluntary services and supports. 

4,532 individuals aged 16 and above

DHMH makes the referrals for NED Category 2 HCVs.

In addition to HCBS, DHMH also provides the Maryland 

Additional Federal Housing Programs

Medicaid State Plan services, such as Community 

In addition to state agencies, local governments, housing 

Personal Assistance Services, which serves 5,400 adults 

authorities, and private owners develop and administer 

and Community First Choice (CFC). The agency expanded 

affordable housing in Maryland for people with disabilities. 

services and coverage for its Medicaid State Plan because 

Table 4.2 provides an overview of the number of persons 

of the Affordable Care Act. Through the Affordable 

Table 4.2 : O ther Federal Housing Programs in Mar yland

Percent With Disabilities 

Number of Household 

Among Head, Spouse Aged 

Percent of All Persons With 

Program

Number of Units Available

Members

<62 

Disabilities

Public Housing

14,600

27,381

39

26

Housing Choice Vouchers

53,519

115,355

37

24

Moderate Rehabilitation

419

1,005

31

22

Project-Based Section 8

24,021

38,316

33

18

811/PRAC

1,185

1,156

99

13

PRAC = Project Rental Assistance Contract. 

Source: HUD (2016)

8 

In January 2014, the Older Adults Waiver and Living at Home Waiver merged to become the Home- and Community-Based Options Waiver.

44

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Chapter 4. Maryland Section 811 Project Rental Assistance Program 

Table 4.3 : 1915 ( c ) Waiver s ( Home- and C ommunit y- Based Ser vices )

Service Type

Service

HCBO

CP

TBI

Home- and community-based services

Assisted living

X

Assistive devices, equipment, technology

X

Attendant care, personal care, personal supports, CSLA

X

Behavior consultation and supports

X

X

Case management, service coordination, resource coordination

X

X

Clubhouse model of day supports

New

Day habilitation

X

X

Dietitian, nutritionist services

X

X

Environmental accessibility modifications

X

Environmental assessments

X

Family and individual support services

X

X

Family and consumer training

X

X

Fiscal intermediary

X

Home-delivered meals

Medical day care

X

X

Nurse monitoring for personal care services

X

Personal emergency response system

X

Residential habilitation

X

X

Respite care

X

Senior center plus

X

Supported employment

X

X

Supports brokerage

X

Transition services 

X

Transportation

X

CP = Community Pathways waiver. CSLA = community-supported living arrangements. HCBO = Home- and Community-Based Options Waiver. TBI = 

Traumatic Brain Injury.

Care Act, DHMH implemented the CFC program. CFC 

○ Personal Emergency Response Systems

consolidated previously overlapping services within the 

○ Consumer training

Medical Assistance Personal Care, Living at Home, and 

Older Adults Waiver programs into a unified and expanded 

○ Nurse monitoring

program. This expansion increased access to vital services 

○ Transition service

that prevent institutionalization and hospitalization. Home- 

○ Items that substitute for human assistance

and Community-Based Options Waiver participants are 

also eligible to receive CFC services. The CFC program 

▪  Home delivered meals

provides the following services.

▪  Assistive technology

•  Community First Choice

▪  Environmental assessments

○ Supports planning

▪  Environmental modification

○ Personal assistance services

▪  Other

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

•  Community Personal Assistance Services program

healthcare service infrastructure. BIP supplements the 

○ Personal assistance services 

resources provided by MFP and helped Maryland invest 

$106 mil ion in HCBS.

○ Support planning 

○ Nurse monitoring 

Olmstead Settlement

•  Disposable medical supplies and durable medical 

Maryland does not have an Olmstead Settlement 

equipment

Agreement and does not have an Olmstead plan. 

However, the Community Access Steering Committee 

•  Home health

was created in 2001 by Executive Order and placed 

•  Psychiatric Rehabilitation Program

under DHMH. The committee consisted of the secretary 

of DHMH, the director of the Governor’s Office for 

DHMH also provides community-based supports to 

Individuals with Disabilities, the secretary of Budget and 

individuals with behavioral health disabilities, which is 

Management, a representative from the governor’s office, 

limited to Medicaid eligible adults. DHMH has provided 

and six other members appointed by the governor. The 

psychiatric rehabilitation services to 2,819 individuals and 

Steering Committee made several recommendations to 

other supportive services to 8,704 individuals in 2013. 

develop additional supportive housing opportunities in 

Additional y, DHMH’s Waitlist Equity Fund is utilized to 

the state, as well as develop systems that help people 

fund services for—

transition from institutions into the community.

•  Individuals transitioning from Intermediate Care 

Because of the Steering Committee’s work, Maryland 

Facilities for Individuals with Intel ectual Disabilities. 

passed legislation that increased the number of people 

These facilities are also cal ed state residential centers.

to be served through Community Pathways Waiver and 

•  People not yet receiving services.

required the Department of Health and Mental Hygiene 

Lastly, DHMH implemented Money Fol ows the Person 

to submit an amendment to expand the Home- and 

in 2007. MFP has successful y transitioned 1,933 people 

Community-Based Options Waiver.

with disabilities from institutions into the community. 

It is also worth noting that the City of Baltimore is under 

Through MFP, Maryland has encouraged the use of 

a consent decree because of a settlement agreement in 

HCBS supports by streamlining the transition process. 

the 2004 housing discrimination lawsuit (Ricky D. Bailey, 

et al., v. Housing Authority of Baltimore City, or Bailey. 

Funding

Bailey required the City of Baltimore to provide HCVs and 

Changes in Medicaid resources away from 

other accommodations to persons with disabilities. 

institutional settings and toward community living. 

Between 2008 and 2014, total Medicaid spending in 

Population Served

Maryland increased from about $5.7 bil ion to nearly 

To be eligible for the 811 PRA program, applicants must 

$9.4 bil ion, a 63.4-percent increase. Funding for long-

meet mandatory program requirements. Also, Maryland 

term services and supports went from $2 bil ion in 

has established placement priorities to ensure that 

2008 to nearly $2.8 bil ion in 2013 (Eiken et al., 2015; 

the state’s priority policy issues, such as aligning with 

KFF, 2017). Home- and community-based services, as 

Olmstead requirements and ending homelessness, are 

a portion of LTSS, also increased during this period, 

addressed. These priority target populations are in this 

indicating the continuing trend of decreased funding 

priority order. 

for institutionalized care and increased funding for 

community-based services and supports. HCBS funding 

1.  Institutionalized Medicaid recipients.

increased from 35.4 percent of LTSS in 2008 to 53.6 

2.  Households at risk of institutionalization due to current 

percent in 2013, which is more than the national average 

housing situation.

of 51.3 percent (Eiken et al., 2015). Maryland ranks 21st 

in the nation for its percentage of Medicaid funds spent 

3.  Community Pathways Waiver participants moving 

on HCBS (Eiken et al., 2015).

from group homes or ALUs to independent renting and 

Residential Rehabilitation Program participants moving 

Other sources of support.  In 2012, Maryland received 

to independent renting.

funding through the Balancing Incentive Program. The 

Balancing Incentive Program, which is administered 

4.  Homeless persons who are Medicaid recipients, 

by Centers for Medicare and Medicaid Services, 

prioritized in the HEARTH Act definition order 

incentivized the state to expand HCBS and improve the 

(HEARTH Act of 2009).

46

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

Within these target priorities, the 811 PRA program 

Supports planner and case managers and The Center for 

serves persons with mental, physical, or developmental 

Independent Living staff received continuous training in 

disabilities. The target populations for the 811 PRA 

811 PRA program requirements, affirmatively furthering 

program units will access a range of inhome and 

fair housing marketing requirements, enrol ment 

community services through Maryland’s HCBS waiver 

procedures, unit application processes, transition 

programs, such as Home- and Community-Based 

planning, and person-centered planning for community-

Options Waiver, Brain Injury Waiver, and Community 

based housing by DHMH and MDOD.

Pathways Waiver, as well as Maryland’s Medicaid State 

Plan programs including CFC and Community Personal 

Referral and Application

Assistance Services.

Successful applications are entered into the waiting list, 

which is maintained by MDOD. Selection of participants 

Outreach, Referral, and Application

for referral to available units will be based on date 

of application, priority population status, selected 

Outreach

geographic area, and readiness to transition to an 811 

811 PRA program outreach to potentially eligible 

PRA unit. 

persons will be conducted through regular supports 

Property managers notify MDOD staff of unit availability 

planner or case manager client contact, MFP outreach 

via telephone or email. Within one week of notice that an 

efforts in institutions, as well as program informational 

existing unit is available or 6 months in advance of new 

materials distributed to CILs, advocacy organizations, 

or substantial rehabilitation unit availability, MDOD staff 

consumer groups, service providers, and other 

sends notification letters to the applicants, their assigned 

healthcare organizations. Program information and 

case manager, and other identified contacts. MDOD staff 

outreach activities include information about eligibility 

also fol ows up by telephone, email, or both. Applicants 

criteria and instructions for enrollment procedures. 

have a specified time from the date of mailed notification 

Outreach activities include efforts to contact difficult-

letter to respond if they are interested in the unit. 

to-reach populations, including non-English speaking 

Supports planners or case managers assist applicants 

populations, and persons with visual impairments and 

with obtaining required documents and completing other 

disabilities that affect their ability to communicate. 

necessary forms. These documents are provided to 

Program information and outreach activities are 

property managers or owners. Property managers review 

tracked and analyzed to determine the effectiveness 

the applications and select a tenant based on their 

of the outreach efforts in reaching certain populations, 

selection criteria and the applicants order in the priority. 

geographic regions, and service systems. 

An offer of tenancy is provided to the applicant who 

Program applications are submitted by an applicant’s 

is ranked highest based on priority category, property 

supports planner or case manager. The Center for 

screening, application date, and readiness for transition. 

Independent Living staff will provide case management-

Tenant training is provided and required for all 811 PRA 

like services to people who do not have access to case 

residents. The training curriculum includes a briefing on 

management services. The Center for Independent Living 

the 811 PRA program and covers topics regarding lease 

staff submit applications on their behalf. 

terms, financial responsibility, tenant responsibilities, 

On identifying an interested person, supports planners 

and fair housing or reasonable accommodations. This 

or case managers will screen for eligibility based on 

training should be completed within 2 months of move-in. 

program criteria. Supports planners or case managers 

Should the selected applicant refuse or fail to complete 

log into the Maryland Housing Search, or SocialServe 

the transition process, the unit will be offered to the 

system to enter demographic and program information 

next eligible applicant. Applications not selected will be 

about the applicants, including their priority category, 

returned to the waiting list and resume their place in line. 

current living situation, unit size and desired county 

Property managers receive the contact information of case 

of residence. MDOD staff will review each application 

managers to help with participant tenancy. MDOD staff 

and approve, deny, or request additional information 

and the MFP Housing Director also provide their contact 

from case managers, depending on the circumstances. 

information to all property owners and managers, and wil  

Successful applications are logged and date stamped by 

continue to serve as points of contact related to participant 

the system. MDOD staff also maintain the waiting list and 

tenancy. A Tenant Issue Process exists to ensure timely 

update applicant status as appropriate.

and responsive handling of issues affecting tenancy. 

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C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

The daily management and coordination of services 

It would be easy for savvy 811 PRA applicants or 

to tenants are provided by supports planners or case 

their supports planner or case manager to indicate a 

managers and other selected service providers, based 

preference for areas of the state in which they do not 

on the individual needs of participants identified in their 

intend to live to increase their chances of being selected 

person-centered plan.

for a unit. Maryland 811 PRA staff should monitor this 

Per the fourth-quarter 811 PRA report, 834 people were 

situation closely.

referred to the Maryland 811 PRA program throughout 

2015. Of those referrals, 59 were institutionalized, 14 

Housing Strategies

were at risk of institutionalization, 227 were homeless, 

Property and Unit Characteristics

40 were at risk of homelessness, 118 were leaving group 

homes, adult care homes or other residential settings, 

Existing versus new construction. DHCD intended 

376 were classified as “other.” Out of 834 referrals, 15 

to utilize existing properties and new construction or 

were found ineligible for 811 PRA. As of December 31, 

substantial rehabilitation properties to source units for 

2015, the 811 PRA waiting list has 819 applicants.

the 811 PRA program. Initial y, DHCD estimated that 

about one-half of the 811 PRA units would be sourced 

Compared with other 811 PRA grantees, Maryland has 

from existing properties financed by the agency and 

a very large 811 PRA waiting list. At the end of the first 

through new construction and substantial rehabilitation 

quarter of 2015, Maryland already had 693 persons 

projects in the pipeline during the next 4 years.

on the 811 PRA waiting list, of which 548 came from 

previous waiting lists and 145 came from new 811 PRA 

Property selection methods and financing.  DHCD will 

applicants. Because eligibility criteria are comparable, 

select projects for the 811 PRA program using DHCD’s 

Maryland was able to place eligible Weinberg applicants 

existing portfolio of properties, as well as projects in the 

on the 811 PRA waiting list. As noted previously, the 

pipeline which are awarded DHCD financing. Only those 

Weinberg Initiative predates the 811 PRA program by 

projects with DHCD oversight or funding are selected for 

a few years and the waiting list for this program was 

811 PRA. 

already robust, which accounts for the size of the 811 

For existing developments, DHCD created a Notice of 

PRA waiting list. In addition, Maryland chose to have one 

Funding Availability for its existing portfolio of properties 

portal for all three programs to make it easier for case 

that would be eligible for 811 PRA. In sourcing 811 

managers to access the programs for their clients. 

PRA properties, DHCD works closely with DHMH and 

As of December 31, 2015, 28 811 PRA applicants were 

MDOD to ensure that units selected for the program 

referred to 811 PRA units. Of the 28 applicants referred to 

are in areas where the target population wants to live. 

811 PRA units, 4 moved into 811 PRA to units. 

DHCD also ensures that 811 PRA units are near public 

transportation, and public and private amenities, such as 

Implications

shopping, medical, and recreation. 

Centralized design lends itself to program size.  The 

For newly constructed projects, DHCD updated its QAP 

centralized nature of the program seems to complement 

to give developers of affordable housing bonus points 

the design of the program. Overly centralized programs 

for accepting 811 PRA units (see the Financing section 

often run into issues in larger scale operations. 

for a description of how Maryland modified its QAP to 

Centralized programs when faced with a lot of activity 

incentivize property developer participation in the 811 PRA 

either experience bottlenecks or suffer lower quality 

program). The incentive initial y applied only to projects 

when staff get overwhelmed. However, Maryland seems 

in the Baltimore and Washington, D.C. metropolitan 

to have automated many of the tasks that could have 

statistical areas (MSAs). The incentive area was expanded 

resulted in bottlenecks. This automation has enabled the 

after Maryland received its FY2013 811 PRA grant. 

state to operate the program at scale.

Current status.  As of December 31, 2015, DHCD 

Implications of unit location and amenities 

executed 1 RAC, which accounts for 13 two-bedroom 

preference. As noted previously in this section, a key 

units. Maryland’s 811 PRA program goal for 2015 was 45 

feature of the referral process is the match between 

units under RAC, out of its total goal of 150 units during 

the location or amenities of a unit and the preference 

the 5-year grant period. Maryland is 32 units below its 

of the 811 PRA participant. One aspect of this process 

goal for 2015 and 137 units short of its 150 target. To 

that requires special attention is the way in which 

date, Maryland has successful y moved four households 

the supports planners or case managers enter this 

into 811 PRA units. 

information on the program application. 

48

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Chapter 4. Maryland Section 811 Project Rental Assistance Program 

Initial y, DHCD anticipated sourcing one-half, or 75 out of 

apartment in the City of Baltimore was $893 per month. 

150 units, of its 811 PRA units through existing properties. 

In 2015, however, the average rent for a one-bedroom 

However, DHCD was not able to source 811 PRA units 

apartment in Baltimore was $1,077. In 3 years, the 

from existing properties. The one NOFA issued received 

average rent for a one-bedroom unit in Baltimore 

very little response. DHCD attributes this difficulty to 

increased by 21 percent. The same could be said of two-

two factors. First, at the time of the application for the 

bedroom apartments. In 2012, the average rent for a two-

811 PRA grant, DCHD was not aware that Environmental 

bedroom apartment in Baltimore was $1,076. By 2015, 

Regulations and Responsibilities (ERRs) would be applied 

the monthly rent of two-bedroom apartments increased 

to existing properties selected for 811 PRA. Second, 

by 22 percent to $1,316 (see table 4.4).

DHCD’s existing portfolio has a high occupancy rate (90 

Although rental prices in Washington D.C. are much higher 

to 95 percent). Very few properties have vacancies, and 

than in Baltimore, the increases in rental costs are less 

many properties have waiting lists. 

pronounced, albeit stil  significant. In 2015, the average 

DHCD has found success in securing commitments 

one-bedroom unit in Washington D.C. was $1,763, 7 

through new construction. DHCD’s goal is to source 105 

percent higher than it was in 2012 ($1,651) (see table 4.5). 

one-bedroom and 45 two-bedroom units. Aside from the 13 

Two-bedroom units were similarly more expensive in 2015 

two-bedroom units under RAC, DHCD has commitments 

($2,250) than it was in 2012 ($2,091). Although the Maryland 

for 43 one-bedroom units and 20 two-bedroom units in the 

811 PRA program will not source units in Washington, 

construction pipeline. If these commitments materialize, 

D.C., the rental prices can be used as a barometer for the 

it will push DHCD past the halfway point at 51 percent of 

Maryland communities surrounding the city.

its total goal (when units already under RAC are included). 

Moreover, these commitments, plus those already under 

Rent and Subsidy Levels

RAC, represent 41 percent of DHCD’s one-bedroom goal 

DHCD’s goal is to evenly distribute units between the 

and 73 percent of its two-bedroom goal. 

Washington, D.C. and Baltimore MSAs. The Washington, 

Rental housing market. A quick review of the Baltimore 

D.C. MSA refers to units in the Maryland counties of 

and Washington D.C. rental housing market seems 

Calvert, Charles, Frederick, Montgomery, and Prince 

to corroborate DHCD’s suggestion. For the calendar 

George’s. The Baltimore MSA refers to units in the 

year ending 2012, the average rent for a one-bedroom 

Maryland counties Baltimore City, Baltimore County, Anne 

Arundel, Carroll, Harford, Howard, and Queen Anne’s. 

Table 4.4 : Average Rent s in Baltimore ( 2012 Ver sus 2015 )

Year

One Bedroom

Two Bedrooms

All Beds

2012

$893

$1,076

$1,163

2015

$1,077

$1,316

$1,264

Difference

$184

$240

$101

Percent increase or (decrease)

21

22

9

Source: Rainmaker Insights (n.d.)

Table 4.5 : Average Rent s in Washington, D.C. ( 2012 Ver sus 2015 )

Year

One Bedroom

Two Bedrooms

All Beds

2012

$1,651

$2,091

$1,833

2015

$1,763

$2,250

$1,947

Difference

$112

$159

$114

Percent increase or (decrease)

7

8

6

Source: Rainmaker Insights (n.d.)

49

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

DHCD assumed that 70 percent of the units will be 

all the eligibility criteria for participation in the home- 

one-bedroom units and 30 percent will be two-bedroom 

and community-based services waiver, and 4. The 

units. The 811 PRA rent structure developed is based 

home- and community-based services provided to the 

on this unit mix and on a blended rate of rents, cal ed 

individual would qualify for federal matching funds.9 

the “blended rent maximum,” in Washington, D.C., 

Maryland’s MFP policy ensures that the highest priority 

and Baltimore. The “blended rent maximum” was 

population can enroll in waivers regardless of the 

calculated by considering an even distribution of units 

programs’ budget caps. This approach ensures that 811 

in the Washington, D.C. and Baltimore MSAs. For the 

PRA participants will have access to support services.

Washington, D.C. MSA, one-bedroom rents are $1,328 

and two-bedroom units are $1,506. The Baltimore MSA 

Coordination

one-bedroom rents are $1,025 and two-bedroom unit 

DHCD, DHMH, and MDOD developed procedures to 

rents are $1,231. The “blended rent maximum” calculates 

ensure that the program operates within the principles 

to an average 811 PRA monthly rent of $1,235 per unit 

of the PSH model. Under this model, services are strictly 

based on DHCD’s assumptions. The anticipated monthly 

voluntary but are available when needed. Once a tenant 

average 811 PRA subsidy is $1,055 per unit and the 

moves into a unit, the primary relationship will be between 

average tenant payment is $180 per unit. 

the tenant and the property manager. To support tenancy, 

DHCD’s initial estimate seems to be fairly accurate thus 

however, contact information will be shared between 

far. For example, for the two-bedroom units in the 811 

tenants, case managers, property managers, and 811 

PRA program at a property in Baltimore MSA, the rent is 

PRA program management staff. Moreover, to support 

$1048 per month. The tenants also receive $137 in utility 

this relationship, the program will provide every tenant 

allowance, which varies between participating properties. 

with education regarding the rights and responsibilities of 

tenancy, reasonable accommodations, use and care of the 

Unit and Tenant Turnover

unit, and financial responsibilities. 

Maryland has not experienced any unit turnover yet. Four 

Under the Tenant Issue Process, property managers 

individuals were housed in 811 PRA units in the fourth 

are trained to contact the tenant directly to resolve any 

quarter of 2015.

issue. If resolution cannot be reached with the tenant, 

Service Provision and Coordination

the property manager is instructed to contact the 

tenant’s case manager to discuss the issue and possible 

strategies for resolution. The property manager can 

Service Provision

contact the MFP Housing Director as a last resort. 

Maryland 811 PRA program participants access 

Like the process established between tenants and 

ongoing healthcare services and transition services 

property managers, participants and service providers 

through both traditional Medicaid HCBS as well as 

have a direct and primary relationship. Supports 

Maryland’s expanded Medicaid State Plan. These 

planners or case managers help in developing the plan 

services are discussed in detail in the Service Provision 

and selecting service providers. Once a participant 

and Healthcare section. Supports planners or case 

is engaged with a provider for a service, the service 

managers assist participants with development of 

provider is instructed to work with the client directly. If 

their individualized and person-center service plans. 

an issue comes to the attention of property managers 

Afterward, the supports planners or case managers help 

concerning service providers that may affect continued 

811 PRA participants receive these services.

tenancy, property managers are instructed to contact the 

Integral to Maryland’s transition efforts is its MFP policy 

tenant, and involve the case manager or housing director 

codified in State law: 

as an escalation procedure. 

The Department may not deny an individual access to 

a home- and community-based services waiver due to 

2013 811 PRA Application

a lack of funding for waiver services if: 1. The individual 

Maryland received two rounds of 811 PRA 

is living in a nursing facility at the time of the application 

funding—$11,229,308 in 2012 (first round) and $9,808,054 

for waiver services, 2. At least 30 consecutive days 

in 2013–2014 (second round). For its 2012 program, DHCD 

of the individual’s nursing facility stay are eligible to 

proposed to source 150 811 PRA units through the annual 

be paid for by the program, 3. The individual meets 

LIHTC funding round for new construction or rehabilitation 

9 

Maryland Code, Health—General §15-137.

50

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

projects as well properties in its existing affordable 

Program Administration, 

housing portfolio. DHCD proposed to source an additional 

150 units for its 2013 program using the same methods. 

Assessment, Information Systems, 

The design for both rounds of funding are the same. Both 

and Data Infrastructure

will focus on the same target populations and leverage 

the same support services and staffing arrangements. 

Program Administration

However, the 2012 program is only sourcing 811 PRA units 

DHCD, in consultation with DHMH and MDOD, selects 

in the Baltimore and Washington, D.C. metropolitan areas 

projects for 811 PRA. DHCD performs all reviews and 

although the 2013 program is sourcing units statewide.

underwriting tasks. DHCD also creates, executes, 

Leveraging

and monitors all Rental Assistance Contracts and use 

agreements managing the rental assistance payments. 

DHCD ensures compliance with 811 PRA requirements 

Housing Choice Vouchers

and mandatory reporting to HUD. DHCD conducts 

DHCD leveraged set-asides of 97 housing choice 

regular physical inspections of the 811 PRA units using 

vouchers from Maryland’s PHAs. The commitments do 

UPCS and by fol owing a frequency and sample size used 

not include HCVs already reserved for nonelderly people 

for the LIHTC program.

with disabilities as part of a PHA’s NED baseline. Through 

DHMH provides voluntary long-term support services 

2015, no HCVs have been leased yet under the 811 PRA 

through the four HCBS waivers and Maryland Medicaid 

HCV commitment. Table 4.6 outlines the PHAs and their 

State Plan services to 811 PRA participants. 

commitments.

DHMH ensures that case managers and other providers 

Other Sources Leveraged

maintain contact with tenants in 811 PRA units per the 

DHMH contributed $1 mil ion in MFP rebalancing funds 

individual’s plan of service. DHMH and MDOD train and 

to support the 811 PRA program. DHCD holds the MFP 

support case managers across all support services 

funds in a trust. This fund will cover the housing subsidy 

agencies to better ensure housing stabilization for 811 

for 811 PRA participants for up to 6 months if 811 PRA 

PRA tenants.

is not renewed and HUD funding is no longer available. 

MDOD staff will manage the daily operations of the 811 

The 6-month period will provide time for residents to 

PRA eligibility and unit identification lists. MDOD will be 

move to new homes or secure vouchers. If 811 PRA 

responsible for ensuring that available units are tracked in 

receives ongoing funding past the first 5-year period, 

the system and that eligible applicants are notified about 

the MFP funds will be directed toward an expansion of 

available units.

the Weinberg Apartments Initiative, which also increases 

affordable and accessible integrated housing for the 

same population.

Table 4.6 : Leveraged Housing Choice Voucher s

Public Housing Agency

Vouchers

Maryland Department of Housing and Community Development

15

Housing Authority of Prince George’s County

10

Rockville Housing Enterprises

10

Housing Authority of College Park

2

Housing Authority of the City of Hagerstown

15

Baltimore County Department of Social Services

25

Saint Mary’s County Public Housing Authority

5

Housing Commission of Anne Arundel County

10

Housing Authority of the City of Frederick

5

Total

97

Source: 2012 Maryland 811 Project Rental Assistance application

51

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

Financial Management

•  LOCCS. HUD’s primary grant disbursement system, 

DHCD has extensive experience with financial management 

handling disbursements for most of its programs. 

of HUD programs, including PBCA, HCVs, HOME, 

Once voucher data are submitted to TRACS and 

CDBG, Emergency Solutions Grants program, CSBG, 

approved for payment, a LOCCS payment is triggered. 

Weatherization, and others. For 811 PRA, DHCD expects to 

On receipt of a LOCCS notification email, a pending 

follow rules and regulations of these programs, including—

state warrant is prepared from the payment detail that 

is uploaded from the LOCCS email notification and 

•  Maintaining separate accounting records for the activities 

sent to Maryland’s Disbursement System. Once the 

of the 811 PRA. Payments to owners will also be 

funds noted in the LOCCS email have been received 

maintained separately from the administrative expenses.

in DHCD’s bank account, the state’s disbursement 

•  The 811 PRA account will be reconciled monthly by DHCD 

system sends an electronic funds transfer to the 

DFA staff and reviewed by the Grant Accounting Manager.

owner’s account on the same day. The tracking 

system keeps a complete record of the LOCCS 

•  Complete and accurate records will be maintained 

deposits and voucher payments made on behalf of 

for 811 PRA units in a Grant Accounting sub-ledger 

each contract.

database, which would be reconciled monthly by the 

DHCD DFA Grant Accountant and reviewed by the 

•  Enterprise Income Verification (EIV).  EIV is a web-

Grant Accounting Manager.

based database containing employment and income 

information on participants in HUD’s rental assistance 

DHCD leverages its PBCA payment infrastructure to 

programs. This information is made available to ensure 

process 811 PRA vouchers. The process for payment 

“the right benefits go to the right persons.” The income 

begins when the property owner or the property owner’s 

information displayed in this system is supported 

agent submits the voucher and tenant data to DHCD 

through a matching agreement between HUD, National 

through the Tenant Rental Assistance Certification System. 

Directory of New Hires or Department of Health & 

DHCD reviews this information, bundles all the property 

Human Services, and the Social Security Administration. 

owner’s submission under its parent account10 and 

DHCD will use EIV to monitor the number and type 

sends the data to HUD via TRACS. If HUD accepts the 

of discrepancies associated with an 811 PRA Demo 

submission, the total amount for payment is reserved in the 

project and will assist projects in investigating and 

Line of Credit Control System. LOCCS then transfers the 

resolving any errors with either tenant identifiers or 

payment to DHCD, which then processes the funds and 

income data entered into the TRACS system.

distributes payment to each property electronically.

•  Maryland Housing Search (SocialServe).  

Information Systems

SocialServe is a web-based application specifical y 

DHCD, DHMH, and MDOD measures and tracks the 

designed for a PSH system enables case managers 

performance of the 811 PRA by using a variety of HUD, 

to assist in enrol ing and determining the eligibility of 

DHCD, DHMH, and MDOD systems. The fol owing is 

applicants for the Weinberg Apartments Initiative and 

a description of the systems used to col ect data and 

the 811 PRA programs. The same application is used 

measure 811 PRA outcomes.

by MDOD to central y manage the waiting list and 

select applicants for referral to owners.

•  TRACS. A web-based database collects data files 

that support the certification, recertification, and 

Successes and Challenges

subsidy bil ing for HUD multifamily projects. TRACS 

provides authorized users with summary and status 

Challenges

data on submitted vouchers. DHCD will use the 

TRACS system to accept process, approve, and 

811 PRA implementation delay. 811 PRA program 

submit voucher payment requests for all 811 PRA 

staff reported some chal enges in the initial program 

Demo projects. TRACS will also be monitored to 

administration due to HUD implementation delays. It took 

ensure data compliance thresholds are met and al  

more than 18 months from the initial award for HUD to 

errors requiring correction are addressed by owners 

issue program materials and the Cooperative Agreement. 

or agents. Existing DHCD automated and accounting 

The Maryland 811 PRA program could not begin formal 

systems interface with the TRACS system and LOCCS 

program implementation without having a signed 

to provide timely payments to owners.

Cooperative Agreement. 

10  

Each participating property submits its vouchers and tenant data via a child account to the state agency administrating the 811 PRA program. 

The state agency bundles all the submissions under its parent account and submits the data to HUD in TRACS. 

52

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

Burdensome environmental review requirements.  811 

turnover, it has not significantly affected the program’s 

PRA program staff reported some chal enges in the initial 

operations. Staff working on 811 PRA from one agency 

program administration due to the constraints of the 

took a position at another agency that also works on 811 

811 PRA program requirements or structures. 811 PRA 

PRA; the shifts have not affected program continuity. The 

program staff were not initial y aware that environmental 

team has maintained institutional knowledge.

review requirements would be applicable to existing 

Maryland Department of Disabilities. MDOD is a 

properties. These requirements eliminated several 

cabinet department focused exclusively on serving 

potential properties from which 811 PRA units could have 

persons with disabilities. It acts as an advocate for the 

been sourced. Maryland had planned for one-half of its 

population within the service delivery system. MDOD can 

150 811 PRA units to come from existing properties. 

coordinate available resources within larger agencies, 

Struggle to source existing units.  The 811 PRA program 

such as DHCD and Maryland Department of Health and 

staff reported chal enges in finding and bringing existing 

Mental Hygiene and help focus their service delivery.

units into the program. The sole NOFA issued for the 

Partnership strength.  DHCD, MDOD, and DHMH staff 

existing housing portfolio received minimal responses as 

began working together in 2001 on the Community 

very few properties have vacancies and many properties 

Access Steering Committee and later participated in 

also have long waiting lists. Property owners are not 

the Governor’s Commission on Housing Policy. MDOD’s 

inclined to participate in a relatively new program like 811 

Secretary chaired the Commission’s Affordable and 

PRA as they would much rather lease the vacant units to 

Accessible Housing for Individuals with Disabilities 

applicants on their existing waiting lists. 

Subcommittee. MDOD initiated the Statewide Taskforce 

The chal enge of not being able to source one-half of the 

for Affordable Housing to take advantage of additional 

150 811 PRA units from existing properties as planned 

private, public sector, and federal funding opportunities 

slowed the program staff’s ability to house applicants on 

in 2010. In 2011, this effort resulted in DHMH’s 

the waiting list. Program staff expressed desire to find 

successful application for the Building Sustainable 

more proactive ways to source existing units. 

Partnerships for Housing Real Choice Systems Change 

Grant funded by CMS. MDOD co-chaired the Advisory 

Successes

Group for Real Choice Systems Change Grant with 

Maryland’s web-based referral system.  The web-

DHMH. The three agencies also worked on other 

based system designed for a PSH system has enabled 

initiatives, including the Bridge Subsidy Program and the 

the 811 PRA program to absorb the number of referrals 

Weinberg Apartments Initiative. 

to the system by enabling case managers to assist in 

DHCD’s Director of Multifamily Housing attributed the 

enrolling and determining the eligibility of applicants 

success of 811 PRA program and the partnership to the 

for the Weinberg Apartments Initiative and the 811 PRA 

following. 

programs. The system is also used by MDOD to manage 

the waiting list and select applicants for referral to owners. 

1.  All three agencies have shown continuous commitment 

to the partnership since col aboration began in 2001.

Money Follows the Person-funded Bridge Subsidy 

Program. DHMH contributed $1 mil ion in MFP 

2.  Staff from all three agencies were immersed in 

rebalancing funds to support the 811 PRA program. 

cross training and mutual learning to understand 

The MFP funds will finance rental assistance for 811 

each other’s language and expertise, leading to the 

PRA participants for up to 6 months if the 811 PRA is 

building of mutual respect for each agency’s roles and 

not renewed and HUD funding is no longer available. 

responsibilities in various initiatives.

This MFP funding availability has al ayed some property 

3.  The principle of trust and transparency is emphasized 

owner concerns about fund availability for future years. 

and valued by the three agencies, which guides their 

Additional y, Maryland’s MFP policy ensures that the 

collaboration continuously.

highest priority population wil  be able to enroll in 

4.  The 811 PRA program staff from all three agencies 

waivers regardless of the programs’ budget caps, thus 

communicate with each other as often as every 

guaranteeing that 811 PRA participants will have access to 

other day to exchange ideas, share experiences and 

support services.

knowledge, and address challenges collectively. This 

Staffing continuity. Although key positions within the 

level of frequent engagement directly contributes to the 

Maryland 811 PRA program have experienced some staff 

program success and the partnership accomplishment. 

53

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 4. Maryland Section 811 Project Rental Assistance Program 

Besides interacting with each other, the three agencies 

col ectively are in constant communication with the 

developer community in Maryland. Building relationships 

and trust with various developers and property owners not 

only facilitates goal alignment, but also ensures cooperation 

from property owners and management companies at the 

program operation and management level.

54

C a s e S t u d i e s – H U D S e c t i o n 811 P R A P ro g r a m

Chapter 5. Minnesota Section 811 Project Rental Assistance Program

Minnesota Section 

included investments of nearly $1.4 bil ion to support 

a continuum of affordable housing activities, including 

811 Project Rental 

internal y generated resources, to serve high-priority 

populations, including persons with disabilities.

Minnesota Housing administers and allocates Low-

Assistance Program 

Income Housing Tax Credits. It annual y revises the 

QAP and develops selection criteria and eligibility 

requirements for tax-credit al ocations that reflect the 

state’s priorities. Minnesota Housing partners with 

local foundations and other state agencies, including 

Introduction

DHS, to award capital funding to projects through 

the annual consolidated request for proposals. This 

In 2012, HUD awarded the Minnesota Housing Finance 

agency administers state-appropriated funding and 

Agency (Minnesota Housing), in partnership with the 

federal resources, including the HOME and the Housing 

Minnesota Department of Human Services (DHS), 

Opportunities for Persons With AIDS Program; it is 

$3,085,500 in Section 811 Project Rental Assistance 

preparing to administer the National Housing Trust Fund. 

program funds to support 85 units with rental assistance. 

Minnesota Housing has a long history of administering 

Minnesota Housing proposed to make available 85 units 

HUD programs that operate very similarly to the 811 

of permanent, supportive housing from existing housing 

PRA program. Minnesota Housing has experience 

stock for extremely low-income, nonelderly adults with 

managing rental assistance programs, such as the 

disabilities. Although Minnesota’s 811 PRA program 

project-based Section 8 developments that include 

is statewide, the initial program interest came from 

Performance Based Contract Administration and 

development owners in the Twin Cities region, which is 

Traditional Contract Administration (TCA) programs, 

composed of two counties—Hennepin and Ramsey. The 

as well as Section 236 contracts. Minnesota Housing’s 

city of Minneapolis is in Hennepin County, and the city of 

Multifamily Division—which includes approximately 120 

St. Paul is in Ramsey County.

permanent staff organized into four functional areas: 

Evaluators conducted a site visit in October 2015. At the 

(1) Supportive Housing; (2) Production or Underwriting; 

close of 2015, Minnesota Housing had placed 67 units 

(3) Asset Management, Compliance, and Contract 

under RACs, exceeding its 2015 annual goal of 35. One 

Administration; and (4) Operations and Reporting— 

unit was occupied. 

administer these programs. 

Grantee Partnership, Organizational 

The state has increased Minnesota Housing’s funding 

level significantly during the past several years through 

Structure, and Management

Housing Infrastructure Bonds. Minnesota Housing’s 

Housing Infrastructure Bonds funding increased from 

Overview

$30 mil ion in 2012 to $80 mil ion in 2014. According to 

Minnesota Housing is the primary applicant and grantee 

Minnesota Housing, it dedicates most of these funds 

for the 811 PRA program and has partnered with DHS for 

(approximately 66 percent) to supportive housing for the 

full program implementation and delivery. This section 

long-term homeless population. This funding is separate 

begins with an overview of each agency, its role within 

from the funds Minnesota Housing allocates from other 

the state more broadly, and the relevant programs 

state-appropriated programs such as the Minnesota 

each agency administers. The section continues with a 

Housing Trust Fund (HTF). Minnesota Housing also 

discussion about the partnerships and a description of 

al ocates most of its $19 mil ion HTF to serve the long-

each agency’s roles and responsibilities for the 811 PRA 

term homeless population.

program. This division of responsibilities is based on 

Minnesota Department of Human Services

areas of functional and specialized capabilities. 

DHS is the state’s lead Medicaid agency and administers 

Minnesota Housing Finance Agency

a variety of healthcare and supportive services. These 

Minnesota Housing promotes homeownership and 

services general y fall into one of four categories. 

increases and preserves affordable rental housing, 

•  Medicaid Home- and Community-Based Services, 

as well as prevents and eliminates homelessness. 

including 1915(c) waivers for persons with disabilities 

Minnesota Housing’s 2010-11 Affordable Housing Plan 

and home care services.

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

•  Adult Mental Health Services, including Adult 

administering this survey since 1989). According to 

Rehabilitative Mental Health Services, Assertive 

Minnesota Housing staff, “the long history of partnership 

Community Treatment, and Adult Mental Health 

has made this work easier for us. A core group of our staff 

Targeted Case Management.

and a core group of their staff work together weekly, if not 

•  MFP Rebalancing Demonstration program.

daily.” The ongoing partnership resulted in benefits for 

the 811 PRA program. The agencies were able to build off 

•  State-funded programs, such as Minnesota’s state-

existing objectives and deliverables from other interagency 

funded Long-Term Homelessness Supportive Services, 

agreements when developing the 811 PRA agreement.

Group Residential Housing, Housing With Supports for 

Adults With Serious Mental Il ness (HSASMI).

In their 2013 col aboration with many of the state’s 

leading advocacy groups and service providers through 

DHS administers its programs through local lead agencies 

the Interagency Council, Minnesota Housing and DHS 

that implement many aspects of Medicaid, including 

adopted a new state plan to end homelessness in 

eligibility determination, assessment of individual need 

Minnesota, entitled  Heading Home: Minnesota’s Plan to 

for services, coordination of services, oversight of service 

Prevent and End Homelessness. Along with the Olmstead 

providers, and direct service provision. DHS oversees 

plan and programs such as Moving Home Minnesota, 

and monitors the performance of local lead agencies and 

which is Minnesota’s MFP program, this new plan serves 

overall compliance with federal regulations, state statutes, 

as the platform to build Minnesota’s 811 PRA program.

rules, and policies. DHS provides informational updates 

and policy guidance, as well as training opportunities, 

Design and Structure of Minnesota’s 811 

for local lead agencies and other service providers. DHS 

PRA Program

also uses Substance Abuse and Mental Health Services 

For its 2012 811 PRA application, Minnesota Housing 

Administration (SAMHSA) evidence-based practices 

determined that the most advantageous opportunity to 

fidelity standards to evaluate PSH. 

implement the 811 PRA program in the 24 month limited 

Minnesota Housing and Department of 

time frame was to use only existing developments as the 

Human Services Partnership

source of 811 PRA units. Developments with rent-restricted 

units (such as those in the LIHTC portfolio), as well as 

Minnesota Housing and DHS have worked together 

developments with existing unsubsidized units in Minnesota 

since the Bridges Rental Assistance Program began in 

Housing’s Section 8 portfolio, provided great initial sources 

the late 1990s. Bridges Rental Assistance Program is a 

of 811 PRA units. Already monitored, these properties 

state-funded program that provides interim supportive 

have staff with federal program administration experience 

housing subsidies for people with severe mental il ness 

and may have staff with previous experience coordinating 

who are waiting for appropriate longer-term subsidies. 

supportive housing. By using existing rental properties, 

The agencies reinforced their col aborative efforts in 

Minnesota Housing anticipates that extremely low-income 

2004 when Minnesota Housing made ending long-term 

renters will be able to access current, nonsubsidized rental 

homelessness a strategic priority. The partnership has 

units, which have been typical y unaffordable.

continued to strengthen over time.

Minnesota Housing determined the number of 811 PRA 

Historical y, the agencies have col aborated by way of 

units to apply for by checking the existing portfolio for 

interagency agreements, interagency councils, and 

the number and location of studio and one-bedroom 

serving as advisors on each other’s programs. Prior 

units with rent limits at 50 percent AMI or less. 

to the 811 PRA program, the two agencies executed 

Minnesota Housing also reviewed its staff capacity and 

interagency agreements for the Bridges Rental 

how many RACs it could reasonably bring online with its 

Assistance Program, Operating Subsidy Program, and 

current staffing levels. 

HSASMI in conjunction with Homeless Management 

Information System and the Wilder Research Survey. 

Minnesota Housing decreased the units it could support 

with its first round of 811 PRA funding from 95 to 85 

The agencies have collaborated on the Minnesota 

after receiving HUD guidance on how the budget 

Interagency Council on Homelessness (Interagency 

should be calculated. The agency initial y planned for 

Council) since 1993 (Minnesota Housing and DHS 

a project timeline that ramped up over time, which 

co-chair the interagency council). Minnesota Housing 

would eventual y lead to 95 units leased by the end of 

and DHS have also raised money together to support 

the 5-year program. HUD clarified that all units must 

the Wilder Research survey that focuses on people 

be funded for a full 60 months of rental assistance. 

who are experiencing homelessness (Wilder has been 

Consequently, although the program is labeled as a 

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

5-year grant program, in reality it will take about 8 years 

for property selection are covered in more detail in the 

before each 811 PRA unit receives rental assistance 

Housing Strategies section. 

funding for 60 months. Consequently, Minnesota 

Minnesota Housing treats the 811 PRA program as 

Housing had to adjust its unit calculation to 85 slots. 

another “arrow in its quiver” of housing programs. The 811 

811 PRA Roles and Responsibilities

PRA program benefits from this arrangement leveraging 

Minnesota Housing’s existing programmatic infrastructure.

Minnesota’s 811 PRA program folds into each of the two 

agencies’ existing operations (in contrast to being run as 

Operational y, within Minnesota Housing, the 811 PRA 

a “standalone” program). Table 5.1 provides a summary 

program is implemented in the following manner. 

of each organization’s responsibilities.

•  A Supportive Housing program manager oversees the 

Minnesota Housing Finance Agency responsibilities. 

811 PRA program. 

Minnesota Housing is charged with sourcing and 

•  The 811 PRA program review team reviews and 

managing housing units for the 811 PRA program. 

selects applications and oversees projects under 

Agency staff conduct outreach to property owners 

development. 

educating them about the 811 PRA program. Minnesota 

•  811 PRA housing management officers review the 

Housing has identified specific properties within its 

tenant selection plans, although housing assistance 

portfolio that may contain housing units eligible 811 

payment officers execute RACs. 

PRA program participation. Minnesota Housing also 

modified its request for proposals application process 

•  HMOs within the asset management and compliance 

to incentivize participation of developers seeking 

team perform inspections and site visits and ensure 

financing for new construction projects in the 811 

compliance with RACs and federal and state program 

PRA program. Specifical y, for the 2016 request for 

requirements. 

proposals, Minnesota Housing increased the points 

•  TRACS data analysts ensure compliance with federal 

available (from 5 to 10) to owner or developers building 

and state program requirements, as well as make 

supportive housing for special populations. Minnesota 

accurate and timely payments to property owners. 

Housing staff work with selected property owners in 

Minnesota Department of Human Services 

executing RACs. Once properties are accepted into 

responsibilities.  DHS uses the same operating 

the 811 PRA portfolio, Minnesota Housing staff are 

principles as Minnesota Housing. The 811 PRA program 

charged with compliance monitoring and ensuring timely 

responsibilities of DHS are woven into its existing program 

rental assistance payments. The specific strategies 

Table 5.1: Minnesot a — 811 P R A Program Division of Responsibilities

Minnesota Housing

Department of Human Services

Recruit and collaborate with local lead agencies responsible for implementing 

Identify or finance eligible units for 811 PRA program.

the Projects for Assistance in Transition from Homelessness, or PATH, program. 

Recruit and collaborate with Money Follows the Person providers. 

Manage waiting list. Oversee referral process in collaboration with local lead 

Execute RACs with property owners.

agencies and MFP providers.

Provide outreach, training, and technical assistance to local lead agencies and 

Provide outreach to developers, landlords, and property owners.

MFP providers.

Monitor local lead agencies and MFP provider processes for referring individuals 

Monitor 811 PRA unit occupancy and compliance with eligibility requirements.

for housing placement.

Monitor local lead agencies and MFP providers to ensure tenants have necessary 

Make rental payments to property owners.

access to housing and support services.

Collect and report required occupancy and financial information.

Collect and report data on service delivery, costs, and outcomes.

Provide ongoing communication with Department of Human Services, local lead 

Provide ongoing communication with Minnesota Housing, local lead agencies, 

agencies, and housing providers.

MFP providers, and housing providers.

MFP = Money Follows the Person. PRA = Project Rental Assistance. RAC = Rental Assistance Contract.

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

infrastructure. Minnesota Housing’s focus is on housing; 

•  Coordinating DHS data collection and analysis.

the responsibilities of DHS center on providing services 

•  Participating in knowledge sharing, outreach, training, 

and supports. As the Medicaid lead agency, DHS offers a 

and technical assistance for the 811 PRA program.

wide variety of healthcare programs. 

Working on the 811 PRA program, key DHS staff fill the 

811 PRA program participants access these services 

following positions.

and supports either through Projects for Assistance in 

Transition from Homelessness, or PATH, or MFP. 

•  Housing coordinator.

•  PATH is a federal and state-funded program dedicated to 

•  MFP director.

providing outreach to people with a serious mental il ness 

•  An Adult Mental Health Division administrator oversees 

experiencing homelessness and connecting them with 

housing policies for people with serious mental il ness 

housing and services. Program funds are awarded to 

and provides the state contact for PATH.

county governments that then either provide the services 

directly or subcontract the work to vendors (typical y 

Program Funding

private social services agencies). Currently, 11 PATH 

In al , the program operate with a total of 3.15 ful -time 

projects in the state serve an estimated 1,400 people. 

equivalents across al  positions. Minnesota Housing 

•  MFP is dedicated to increasing use of HCBS and 

contributes 2.15 FTE, and DHS contributes 1.0 FTE. 

reducing use of institutional y based services. MFP 

These numbers exclude PATH and MFP staff. 

referrals are administered through county governments, 

The core Minnesota Housing team working on the 811 

managed care organizations, tribes, and service 

PRA program includes—

contractors. MFP operates in a small unit within the 

continuing care administration. Currently, 167 people are 

•  Program manager (0.4 FTE on the 811 PRA program).

enrol ed in MFP, of which 103 moved into community-

•  Operations project manager (who supports the 

based settings, with another 25 in the pipeline. 

program manager) (0.4 FTE on the 811 PRA program). 

DHS assumes important responsibilities for the 811 

•  Asset management and compliance supervisor, 

PRA program. DHS staff provide the quality assurance 

PBCA (0.25 FTE on the 811 PRA program).

function and are charged with making sure that 811 PRA 

•  TRACS and housing assistance payment (0.1 FTE on 

participants receive the services they need. DHS staff 

the 811 PRA program).

also manage services that 811 PRA participants access 

through the Medicaid state plan, which includes home- 

In addition, asset management staff who report to the 

and community-based waivers. 

asset management and compliance supervisor, include—

DHS provides information to lead agencies and other 

•  0.25 FTE from the housing management officers 

stakeholders about opportunities through the 811 PRA 

who do annual inspections and program monitoring. 

program. The agency also provides training and 811 

HMOs travel to property sites, conduct physical 

PRA program technical assistance to PATH agencies, 

inspections and audit tenant files. These staff 

especial y referrals, access to services, and utilization of 

members are the same staff who monitor their 

811 PRA program rental assistance.

project-based Section 8 properties; they modified the 

monitoring process to meet 811 PRA requirements. 

Furthermore, DHS staffs the Housing Coordinator, a 

critical role in the Minnesota 811 PRA program. The 

•  0.15 FTE for staff to process monthly vouchers 

Housing Coordinator must be a DHS staff member so 

coming in from Project-Based Rental Assistance 

that he or she has access to participants’ confidential, 

sites, rol ing up the payments from the properties and 

health-related service information. The Housing 

submitting the data to HUD.

Coordinator’s responsibilities include—

•  0.15 FTE for the Contracts Team executing RACs and 

•  Coordinating with the Minnesota Housing program 

amending rents. 

manager to track 811 PRA unit availability and 

Initial y, Minnesota Housing’s 811 PRA staffing plan was 

occupancy status.

expected to need about 0.75 FTE for the initial program 

•  Matching referrals to units from 811 PRA-eligible MFP 

setup, which would then gradual y decrease to a 0.5 FTE 

and PATH participants.

level as it exits the startup phase. Minnesota Housing 

has, however, spent considerably more staff time on 

•  Managing the 811 PRA waiting list.

program administration than it had envisioned in the 

•  Ensuring service coordination.

application. Currently, Minnesota Housing dedicates 

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

about 2.15 FTE across all roles. Minnesota Housing 

leverages funds available through this program to 

leadership understood that some initial investment of 

promote the development of supportive housing using 

staff time was required, but never expected it would be 

point incentives in the Qualified Al ocation Plan. 

at a FTE level for this long of a period. 

•  Minnesota HTF and Ending Long-term 

The 811 PRA program has also used a small amount of time 

Homelessness Initiative Fund (ELHIF).  In the 

from the legal and accounting departments. In addition, 

initial startup of Minnesota’s Business Plan to End 

Minnesota Housing anticipates al ocating more staff time 

Long-Term Homelessness, HTF and ELHIF were 

for col ecting and reporting data and performance metrics 

two primary capital-funding vehicles for supportive 

once the program begins to lease its units.

housing, particularly for developments that 

In its application, Minnesota Housing estimated that 

composed of 100 percent supportive housing units. 

it would cost about $350,000 to fund the positions it 

During the 5-year period ending in 2011, these funds 

committed to during the 5-year period. However, that dol ar 

provided more than $29 mil ion in capital loans and 

figure was based on a much lower level of effort. Minnesota 

another $4.2 mil ion in operating subsidies, resulting 

Housing estimated the program would require the most 

in funding for 44 projects and 20 new contracts, 

effort during the first 4 months and al ocated 1.5 FTE 

which led to the creation of more than 1,000 

during this period. Minnesota Housing believed the level of 

supportive housing units.

effort would taper to 0.75 FTE for months 5 through 9 and 

•  Low and Moderate Income Rental (LMIR) 

eventual y level off to 0.5 FTE from month 10 through the 

Program. The LMIR program provides mortgages 

end of the 5-year period. Although the 811 PRA program 

for the construction, acquisition, rehabilitation, or 

will provide a $235,500, or 8 percent of the 811 PRA rental 

refinancing of affordable housing units. It is Minnesota 

subsidy amount, toward administrative expenses during 

Housing’s third-largest program with $176 mil ion in 

the 5-year term, Minnesota Housing staff now believe that 

outlays during the 5-year period. These loans funded 

program costs will be much higher than initial y estimated. 

84 projects with 5,448 units, 4,937 of which were 

Minnesota Housing is using its own resources to fund its 

assisted and 229 of which are supportive housing.

staff commitments to the 811 PRA program that have not 

Minnesota Housing believes that the 811 PRA program 

been adequately covered by the 811 PRA grant.

will assist in increasing supportive housing production, 

DHS supports the program by providing resources for 

especial y at LIHTC properties. Applications received 

the Housing Coordinator position. This position, covered 

extra points for agreeing to incorporate permanent 

DHS funds received from MFP, is a 1.0 FTE set-aside for 

supportive housing in their proposed developments in 

the 811 PRA program. DHS estimates it will spend more 

Minnesota Housing’s consolidated request for proposals 

than $385,000 for the first 5 years of the program for this 

process. (These extra points were significant because 

position alone. 

applying for state financing is very competitive.) 

State Context: Housing Programs

Aside from providing the needed financial incentive 

(through rental assistance), Minnesota Housing believes 

that property owners may be more likely to participate 

Housing Programs

knowing that the 811 PRA program has the necessary 

Minnesota Housing administers several multifamily 

services infrastructure in place to support their participants.

financing programs. Besides providing capital financing 

Resources to prevent and end long-term 

for rental housing, all these programs also include 

homelessness. In addition to the capital programs 

supportive housing units. Detailed here are three of the 

previously listed, Minnesota Housing has rental 

agency’s housing programs that fund supportive housing. 

assistance programs and operating assistance funds. A 

•  LIHTC. This program is Minnesota Housing’s 

discussion of some of these programs fol ows.

largest fund with nearly $600 mil ion in outlays on 

•  Long-Term Homeless Rental Assistance and 

122 projects from 2006 to 2011. This investment 

Operating Support is funded through HTF and ELHIF. 

translates to 8,752 units, 8,394 units assisted, and 

The two resources provide operating subsidies and 

369 supportive housing units. This program provides 

rental assistance for permanent, supportive housing 

federal income tax credit to owners and investors 

for persons experiencing long-term homelessness. 

in the construction or acquisition with substantial 

Rental assistance is provided to 1,200 households 

rehabilitation of housing properties. Properties 

annual y and operating assistance is provided to 

receiving LIHTC must meet income and rent 

1,450 households annual y.

restrictions for at least 30 years. Minnesota Housing 

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

•  Bridges Rental Assistance Program grants provide 

Plans to end homelessness. Adopted in 2004, the 

rental assistance payments to households with at 

Business Plan to End Long-Term Homelessness ended in 

least one adult with serious mental il ness. Bridges 

2013, by which time more than 4,000 opportunities for long-

Rental Assistance Program provides 850 supportive 

term households for homeless people had been created. 

housing opportunities annual y.

Most of the opportunities have been funded from state-run 

Supportive housing programs.  In addition to these 

housing financing programs, such as LIHTC, HTF, Housing 

varied programs, Minnesota Housing and DHS have 

Infrastructure Bonds, and ELHIF. Since 2013, a new state 

collaborated in delivering housing programs that assist 

plan has been adopted:  Heading Home: Minnesota’s Plan 

persons with disabilities—particularly those with a 

to Prevent and End Homelessness. In this plan, Minnesota 

mental health disability, experiencing homelessness, or 

has committed to developing 5,000 new affordable 

both. These programs include— 

and supportive housing units for extremely low-income 

households. The 811 PRA program wil  help Minnesota 

•  HSASMI grants and Operating Subsidy Program funds 

in its efforts to end homelessness by providing rental 

provide operating support to multifamily housing units 

subsidies for the long-term homeless target population.

that have integrated supportive service options to 

assist individuals with a serious mental il ness.

Additional federal housing programs.  In addition to 

state agencies, other entities such as local governments, 

•  Bridges Regional Treatment Center Pilot Program is 

housing authorities, and private owners develop and 

similar to the Bridges Rental Assistance Program but 

administer affordable housing in Minnesota for people with 

is focused on individuals currently staying at a 175-

disabilities. Table 5.2 provides an overview of the number 

bed psychiatric hospital that serves those who have a 

of persons served by five major federal y funded housing 

mental il ness.

programs. As shown, a nonelderly person with a disability 

•  The Minnesota Supplemental Aid (MSA) Shelter 

heads about one-half of Public Housing residents and 44 

Needy program provides an income supplement for 

percent of Section 8 recipients. In addition, Minnesota has 

persons with a disability to help make housing in the 

640 Non-Elderly Disabled Vouchers.

community more affordable.

Rental Housing Market

•  Group Residential Housing provides income 

supplements in certain qualified licensed or 

Although the 811 PRA program is statewide, Minnesota’s 

registered settings.

initial focus is on obtaining participating properties in 

the Twin Cities area. Rents in the Minneapolis-St. Paul 

•  The Crisis Housing Fund provides financial assistance 

area have risen significantly during the past decade. This 

to help recipients with serious and persistent mental 

trend poses a challenge to the development of affordable 

il ness retain their housing in instances where they 

and supportive housing. 

need to receive temporary residential treatment.

Table 5.2 : Minnesot a — O ther Federal Programs

Percent With Disabilities 

Number of Household 

Among Head, Spouse  

Percent of All Persons With 

Program

Number of Units Available

Members

Aged <62 

Disabilities

Public Housing 

20,746

36,208

48

31

Housing Choice Vouchers

36,270

86,877

39

20

Project-Based Section 8

30,866

46,866

44

21

202/PRAC

2,419

2,448

95

7

811/PRAC

762

802

99

193

PRAC = Project Rental Assistance Contract. 

Source: HUD (2016)

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Chapter 5. Minnesota Section 811 Project Rental Assistance 

Program

Rental prices in the Minneapolis-St. Paul area climbed 

Figure 5.2 : Minnesot a — Rent al Vacancy Rates in 

steadily from 2010 through 2015. According to Minnesota 

Twin Cities ( 2010 –2015 ) 

Housing Partnership, the average market rate rent (a 

composite of average rents that incorporates all unit 

types) increased from $908 per month in 2010 to $1,055 

Vacancy Rates in the Twin Cities, Metro

per month in 2015 (for more detailed information, see 

2005-2015, Quarterly

figure 5.1). This change represents an increase of 16 

9.0%

percent, or $147 per month during the past 5 years 

8.0%

(Minnesota Housing Partnership, 2016). 

7.0%

6.0%

Figure 5.1: Minnesota — Average Market 

5.0%

Rents in Twin Cities ( 2010 –2015 )

4.0%

2.9%

3.0%

2.3%

2.0%

1.7%

1.0%

0.0%

Twin Cities Average Rent

2010

2011

2012

2013

2014

2015

2010-2015, Annual Average

Vacancy Rate

Vacancy Rate, $1000 or Less

Quarterly Unemployment Rate

$908

$927

$957

$981

$1,021

$1,055

Source: Minnesota Housing Partnership (2016)

Service Provision and Healthcare

Minnesota has programs individual y dedicated to each 

target population. 811 PRA participants entering the 

program through Money Fol ows the Person receive 

targeted support from the state’s MFP program. 

These services include person-centered planning, 

2010

2011

2012

2013

2014

2015

transition, and coordination services, access to assistive 

Source: Minnesota Housing Partnership (2016)

technology, and personal emergency monitoring, as well 

as assistance with moving costs, such as transportation, 

Minnesota Housing Partnership noted that the increase 

furnishings, and groceries.

in demand and the shortage in supply are the main 

PATH participants are recruited for the 811 PRA program 

drivers of the increase in rental costs. Vacancy rates in 

by outreach workers employed by local lead agencies. 

the Twin Cities are at their lowest levels in decades. As 

811 PRA participants entering the program through PATH 

figure 5.2 demonstrates, vacancy rates in the area have 

have access to PATH-supported programs and services. 

steadily declined during the past 10 years, from roughly 6 

These services include case management, screening 

percent in 2005 to 2.3 percent in 2015. 

and diagnostic treatment, community mental health, 

The increase in rental prices throughout the Twin Cities 

alcohol or drug treatment, support and supervision in 

metro area is a real problem for the supportive housing 

residential settings, as well as referrals and assistance 

development, in general, and for the 811 PRA program, 

with accessing financial and health benefits.

in particular. As noted previously, the average rent for a 

In addition to targeted services supporting each 

one-bedroom unit in the Twin Cities is $859. This price is 

target population, as previously outlined, 811 PRA 

much higher than the $743 contract rent per month at 50 

participants will have access to other DHS programs. 

percent of Area Median Income, as estimated by Minnesota 

DHS administers a variety of federal y funded healthcare 

Housing, or the $796 that is al owable for this unit type 

services, including Minnesota’s Medicaid program, as 

under HUD’s FY 2015 Fair Market Rent requirement for the 

well as other state- and grant-funded services. These 

Minneapolis-St. Paul-Bloomington MSA. To circumvent this 

services are highlighted in table 5.3. Please see the 

issue, Minneapolis Housing identified units in its existing 

section on Service Provision and Coordination for a more 

portfolio with rents limited to 50 percent AMI so that owners 

detailed description of these services. 

did not have to lower rents to participate in 811 PRA.

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

Table 5.3 : Minnesot a — Ser vices Available to 811 Project Rent al A ssist ance Par ticipant s Medicaid Services

State- and Grant-Funded Services

•  1915(c) waivers for persons with disabilities, or developmentally disabled, 

traumatic brain injury, Community Access for Disability Inclusion, Community 

•  Adult Mental Health Community Support Program

Alternative Care.

•  Medicaid Home Care Services.

•  Minnesota’s state-funded Long Term Homelessness Supportive Services.

•  Medicaid Adult Rehabilitative Mental Health Services.

•  Housing With Supports for Adults With Serious Mental Illness.

•  Department of Human Services is proposing a new Medicaid service to add. 

Tenancy Support Services using a Critical Time Intervention model.

•  1915(i) to support individuals with mental illness.

Changes in Medicaid Resources

3.  Housing and services. This topic area contains 

Between 2008 and 2014, total Medicaid spending 

goals aimed at moving people with disabilities out of 

increased from about $7 bil ion to about $10 bil ion 

institutional settings. 

statewide, a 43.6-percent increase (Eiken et al., 2015; KFF, 

4.  Supports (transportation, health care, positive support, 

2017). Funding for long-term services and supports rose 

crises services, assistive technology, and abuse and 

from approximately $3.4 bil ion in 2008 to $3.9 bil ion in 

neglect prevention). This area focuses on building 

2013 (Eiken et al., 2015). Home- and community-based 

program capacity and on increasing the resources that 

services, as a portion of LTSS, also increased during 

will support people with disabilities as they live, work, 

this period, continuing a trend of decreased funding 

and learn in the settings that they choose.

for institutionalized care and increased funding for 

5.  Community engagement. This topic focuses on 

community-based services and supports. HCBS funding 

engaging people with disabilities.

increased from 68 percent of LTSS in 2008 to 73.6 percent 

in 2013, significantly more than the national average of 

The state has set very ambitious goals in its Olmstead 

51.3 percent (Eiken et al., 2015). Minnesota has been 

plan. The overarching goal of housing services is 

at the forefront of supporting HCBS funding and ranks 

to assist people with disabilities to live in the most 

second in the nation for allocating the highest amount of 

integrated setting of their choice and receive person-

its LTSS funds to HCBS (Eiken et al., 2015).

centered planning. DHS’s transition service providers 

seek to significantly increase the number of people 

Olmstead Settlement

with disabilities who live in their communities of choice 

Minnesota has an Olmstead plan to settle a class action 

and receive financial assistance. The specific goal is 

lawsuit in U.S. District Court ( Jensen v.  Minnesota 

to increase assistance to people from 6,017 in 2015 to 

Department of Human Services). In 2011, that case was 

11,564 by 2019, an increase of 5,547 or 92 percent. The 

resolved through a settlement agreement, but it took 

811 PRA program will help Minnesota meet some of its 

nearly 4 years for the state to develop a comprehensive 

Olmstead goals, particularly as it relates to housing and 

plan that was accepted by the U.S. District Court on 

transition services.

September 29, 2015. Governor Mark Dayton appointed 

Population Served

an Olmstead Subcabinet, now chaired by Minnesota 

Housing, to develop the plan and carry it out.

Initial eligibility under the Minnesota 811 PRA program 

The plan has five main topic areas. 

meets the criteria set forth by HUD under the Notice 

of Funding Availability, which includes single adults or 

1.  Person-centered planning. This topic area is 

families. 811 PRA eligible households are those who— 

focused on listening to individual preferences and 

valuing their choices.

1.  Are extremely low income (30 percent AMI or less).

2.  Services.  This topic area is focused on transition 

2.  Are eligible for community-based, long-term services 

services, housing, employment, learning, and waiting 

funded through Medicaid or state funding sources.

lists. 

3.  Have a disability and are at least 18, but less than 

62 years of age at the time of admission, or who are 

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

members of a family who has at least one member 

Outreach, Referral, and Application

who has a disability and is at least 18, but less than 

62 years of age at the time of admission.

Outreach

In its 811 PRA application, Minnesota designated two 

The Minnesota 811 PRA program will use a combination of 

target populations to be served under the 811 PRA 

existing resources for outreach services (see figure 5.3). 

program. The identification of the two fol owing target 

PATH outreach workers will do extensive outreach on the 

populations was designed to leverage current efforts in 

streets and in institutions. Their goal will be to connect 

two statewide initiatives: MFP and Minnesota’s Plan to 

with people who are both experiencing homelessness and 

Prevent and End Homelessness.

having a serious mental il ness or other disability. For MFP, 

1.  Individuals experiencing long-term homelessness 

case managers at institutions will identify potential 811 

who have a serious mental il ness.

PRA participants and refer them to transition coordinators. 

2.  Individuals with physical or mental disability who are 

MFP Outreach

exiting institutional settings after a long-term stay (90 

As part of the required annual assessment, case 

days or more) and are assisted by MFP.

managers at DHS facilities must ask whether an individual 

No changes to the target population served have occurred 

in their care is interested in moving from the facility to a 

since the submission of the 2012 811 PRA application. 

community setting. For individuals who wish to move to 

Units are offered on an alternating basis between the two 

a community setting, the case manager will develop an 

target populations previously cited, based on the date and 

application for MFP or for a relocation service coordinator. 

time applications are received. Participants are asked to 

If the client chooses MFP, MFP staff will verify eligibility 

indicate their location preferences. 

and once the individual signs a consent form, wil  enroll 

When units become available, 811 PRA participants 

the individual in the MFP program. Once individuals are 

are referred to the property owner based on (1) the 

accepted into MFP, they are provided the opportunity 

participant’s place on the waiting list, (2) the participant’s 

to select a lead agency that then assigns a transition 

indicated preference to live in the community where the 

coordinator. Transition coordinators wil  assess each 

unit is located, and (3) whether the available unit fits the 

individual’s housing needs and connect with the housing 

requirements of the 811 PRA participants, in terms of 

coordinator to check for housing opportunities in the 811 

characteristics, such as bedroom types and accessibility. 

PRA program. The housing coordinator places applicants 

on the waiting list. 

Figure 5.3 : Minnesota — 811 Project Rental Assistance Outreach

Operations

Housing Coordinator

Program

PATH

MFP

Target Population

LTH

Exiting an institution

Sources

Outreach 

Outreach in Shelters, 

Nursing Homes, ICF-DD, Community 

on Streets

Hospitals, Jails

Behavioral Health Hospitals, etc.

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

The Housing Coordinator also conducts research and 

managers.” For PATH outreach workers employed by 

outreach in the community to find out about institutions 

social service agencies, connecting individuals to LTSS 

and nursing homes that may be closing or residents 

often involves making inhouse referrals, as the agency 

looking for housing in community-based settings.

already provides many of these services. The supervisor 

Minnesota statute requires a 60-day public notice 

previously quoted further indicated having a permanent 

requirement to announce the closing of an institution. 

housing resource is critical to the ongoing provision of 

Embedded within this process is the requirement that 

services for the target population. If consumers do not 

families be informed of the impending closure before 

have permanent housing, they may become transient and 

the public announcement. The Housing Coordinator is 

then lost to the case workers. Hence, having permanent 

also given notice of this termination and reaches out 

housing options raises the likelihood target populations 

to the families after they have been formally notified by 

will get the services they need. 

the institution. 

Referral and Application

DHS will also conduct outreach to eligible individuals 

A key Minnesota 811 PRA program feature is the 

through periodic mailings and other outreach activities. 

centralized coordination of all outreach, referrals, and 

MFP is developing a plan to have consumers, who have 

management of the 811 PRA waiting list. The Housing 

successful y transitioned from institutional placements to 

Coordinator performs these centralized functions. 

community residences, do outreach on its behalf. MFP 

According to the 2015 fourth-quarter 811 PRA report, 70 

believes that this peer-to-peer marketing strategy will be 

applicants were placed on the waiting list. 

successful in generating interest. 

MFP transition coordinators and PATH outreach workers 

PATH Long-Term Homelessness Outreach

determine eligibility and submit 811 PRA applications 

PATH outreach workers will connect with individuals 

directly to the Housing Coordinator, who reviews the 

on the street and in more stable settings (like shelters, 

applications and places applicants on the waiting list. 

treatment centers, or correctional facilities) to identify, 

The waiting list is a Microsoft Excel workbook with some 

engage with, and enroll PATH-eligible clients. PATH 

functionality built in for reporting.

outreach workers have dedicated office hours in shelters 

According to the fourth-quarter 811 PRA report, 88 

within their service area. They also will conduct outreach 

referrals were to the Minnesota 811 PRA program during 

to other areas with a high concentration of long-term 

2015. Of those, 12 were institutionalized, 3 were at risk 

homeless population, such as hospitals, libraries, and 

of institutionalization, and 73 were homeless. Most of 

even county jails.

those referred to the 811 PRA program, 76 people, had a 

The housing needs and preferences of PATH clients are 

mental health disability, and 11 had a physical disability. 

assessed by the PATH outreach workers. These workers 

At the end of 2015, out of 88 referrals, 70 applicants were 

will identify individuals who are 811 PRA-eligible and help 

on the 811 PRA waiting list, 12 were found ineligible for 

them apply to the program. PATH staff will communicate 

the 811 PRA program, 4 were referred to units, and 1 

via email or phone with the Housing Coordinator to 

applicant was housed in a 811 PRA unit. 

submit the individual’s application to the 811 PRA 

Implications

program. The Housing Coordinator reviews and verifies 

this application. If accepted, the Housing Coordinator 

Centralized design lends itself to program size. The 

places the applicant on the waiting list. 

centralized nature of the program seems to complement 

program design. Overly centralized programs often 

PATH staff will assist with the tenant transition to housing. 

run into issues in larger-scale operations. Centralized 

County-operated PATH outreach workers wil  then 

programs when faced with a lot of activity either 

connect the individual with ongoing supports and services 

experience bottlenecks or suffer from quality when 

before ending the transitional efforts. These services are 

staff get overwhelmed. However, given the size of 

contracted out to third-party social service agencies. 

Minnesota’s 811 PRA program, this centralized design 

The 811 PRA program has been very well received by 

seems to fit very wel .

the PATH program staff in Hennepin County. A PATH 

Implications of unit location and amenities 

outreach team supervisor commented, “[811 PRA] offers 

preference. As noted previously in this section, a key 

a huge opportunity. We haven’t had a housing tool in our 

feature of the referral process is the match between the 

bucket before to offer people. We can attract people into 

location and amenities of a unit and the preferences of 

our program by providing long-term supports and case 

the 811 PRA applicant. One aspect of this process that 

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

requires special attention is the way in which the PATH 

exist. If people have been placed away from their 

outreach workers and MFP transition coordinators enter 

institution, they may choose to locate back where they 

this information on the program application. 

came from,” the official concluded. 

It would be easy for a savvy 811 PRA participant or 

DHS determined where its institutionalized participants 

referring provider to indicate a preference for all areas 

came from using nursing home and institution data. 

of the state to increase the chances of being selected 

“That’s what we used to focus on: the high-need 

for a unit. The Hennepin PATH providers were selecting 

counties and communities that had regional HUBs that 

the entire state initial y, without consulting the applicant, 

had good access to services,” noted a DHS staff.

thinking they would acquire a unit more quickly for their 

As a result of its analysis, Minnesota Housing has 

participants. Since then, the Housing Coordinator has 

established some 811 PRA program participation criteria 

worked to educate the referring providers to al ow for 

for interested properties. Interested property owners 

applicants to select locations where they want to live for 

must have the appropriate background and experience 

the long term and not merely any location. Minnesota 811 

in managing multifamily properties and Section 8 and 

PRA staff will have to monitor this situation closely.

Housing Choice Voucher programs. Certain locational 

Housing Strategies

criteria also apply. Minnesota Housing requires that 

participating properties be in areas that have access 

to transportation and service providers, and be in “job 

Property and Unit Characteristics

growth communities.” In addition, access to the target 

Rents and tenant contributions. Rents for the 

populations is important. Properties must either be 

Minnesota 811 PRA program are based on 50 percent 

in close proximity to target institutions and facilities 

AMI. The average contract rent shown in the 811 PRA 

that MFP participants may exit from or be close to an 

budget is $743 per unit per month, which includes an 

identified population of long-term homeless households in 

average tenant contribution (rent and utilities) of $240 

PATH service areas. 

per month. Subtracting the expected average tenant 

Property selection methods and financing. Minnesota 

contribution from the contract rent, Minnesota Housing 

Housing procured 811 PRA units from existing 

expects that the average 811 PRA monthly subsidy would 

developments in its portfolio, owned by developers 

be $503 per month. 

with Section 8 experience that already had one- and 

Minnesota Housing staff have expressed concern 

two-bedroom units rent-restricted to 50 percent AMI. 

about how the budgeting for RAC amounts and tenant 

Minnesota Housing selected units in these developments 

contributions would play out during the life of the grant 

for the 811 PRA program that were not already 

term, but know that a clearer picture will emerge once 

subsidized by other programs.

the program is ful y operational. At this point, staff believe 

The logic behind this strategy is simple. Properties that are 

that many of the 811 PRA participants will have no 

currently in the agency’s LIHTC and Section 8 portfolio are 

income when they enter the program. If this assumption 

already monitored by Minnesota Housing staff. Moreover, 

is correct, this lack of tenant’s contribution will place 

these properties are staffed by professionals with federal 

a significant strain on 811 PRA program finances. 

housing and supportive housing program experience.

Minnesota Housing staff acknowledge that incomes 

will fluctuate over time; thus the real average tenant 

Minnesota Housing conducted extensive outreach to 

contribution will not be known for some time. 

owners to gauge their interest in the 811 PRA program 

Minnesota Housing started with properties that were 

Urban versus rural. In administering a statewide 811 

previously financed under its multifamily programs (such 

PRA program, Minnesota Housing determined the Twin 

as LIHTC, HTF, and Affordable Rental Investment Fund) 

Cities metro area and northeast, west central, central, 

from the agency. From this list, they targeted only 

and southeast Minnesota as priority regions. Minnesota 

properties that had units with rent levels set at 50 

Housing, with assistance from DHS, prioritized 811 

percent AMI or units with no rent restrictions but were 

PRA developments that are in regional hub cities, 

affordable to households at or below 50 percent AMI. 

which thereby are close to necessary services and 

Minnesota Housing targeted this segment of units to 

other amenities. “Our strategy was that half of the units 

expand the number of housing units that would be 

would be in the metro area,” stated a senior Minnesota 

affordable to extremely low-income households. 

Housing staff member. “We focused on the ‘bright 

However, only a portion of Minnesota Housing’s LIHTC 

lights,’ places where participants wil  have access to 

properties had units that fit these criteria. Most of 

services. In rural areas, less access to services may 

Minnesota Housing’s LIHTC properties have units with 

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

rent levels that are set at 60 percent AMI.11 By targeting 

At each of these Clearinghouse Committee meetings, the 

only properties with rent levels set at 50 percent AMI or 

811 PRA program Manager gives a presentation on the 

were natural y affordable to households at 50 percent 

owner and property. At the start of the 811 PRA program, 

AMI, Minnesota Housing was limited in the number of 

these presentations took approximately 20 to 30 minutes 

properties from which it could choose. 

each, al owing for time to discuss many aspects of the 

Minnesota Housing narrowed the list further by taking 

811 PRA program. Now the presentations take less 

out developments that were already restricted to long-

time as only the specific development is discussed in 

term homeless or persons with disabilities. Placing 811 

detail, not aspects of the entire 811 PRA program. After 

PRA units in the developments already serving persons 

the presentations, the Clearinghouse Committee then 

with disabilities would likely cause the property to exceed 

approves or disapproves the selections. 

the 25-percent limit of supportive units for low-income 

Once an application receives Clearinghouse approval, 

nonelderly people with disabilities.

the application is presented to the Minnesota Housing 

However, this approach did have its downsides. 

Board, the final approving authority, during the regularly 

Minnesota Housing had difficulty recruiting owners with 

scheduled monthly meeting. 

existing rental properties that fit the previous criteria. 

Once approved, owners are given 30 days to provide the 

Intense marketing and educational efforts by Minnesota 

required documentation and paperwork (the checklist 

Housing staff have helped to mitigate some of the initial 

items). Minnesota Housing then has up to 15 days to 

reticence of some property owners about the 811 PRA 

review this information. The checklist items form the 

program. One of the factors creating difficulties was the 

basis of the closing documents. 

lack of financial incentive for owners. Little to no financial 

Current status.  In 2015, Minnesota Housing executed 

reward exists for owners to accept the 811 PRA program 

five Rental Assistance Contracts, with a total of 67 units. 

at their existing properties. The program comes with 

Minnesota’s 811 PRA program goal for 2015 was 35 units 

extra restrictions that add to already complex funding and 

under RAC, so it exceeded its goal by 32 units and is only 

compliance measures for their properties. Partners and 

18 units short of meeting its goal for the entire 85-unit 

investors have concerns about how two restrictions (on 

program. However, Minnesota has occupied only one 

long-term rent levels and on 30-year use) will affect the 

unit to date; 66 of its 67 811 PRA units are not available 

property’s long-term financial viability and marketability. 

because they are currently occupied. Minnesota Housing 

Additional y, owners who are inexperienced in serving the 

col ects turnover rate estimates from each property owner 

target populations may have felt that it was too risky to 

based on historical data, then estimates when 811 units 

pursue without any compensating financial reward.

will be fil ed. The agency then updates quarterly its lease 

Once owners indicate an interest in participating in 811 

up tracking based on actual lease ups so that they can 

PRA, they are asked to complete an application, which 

project turnover as accurately as possible. 

gives Minnesota Housing basic information about the 

property, rents, the ramp-up schedule, location, access 

Determining the Initial Rent Level

to services, and amenities. Minnesota Housing uses a 

Minnesota Housing used the FMR for a one-bedroom 

25-question form to review the application. 

unit in the Minneapolis-St. Paul metro area to develop 

The 811 Application Review Committee reviews every 

its 811 PRA rent projection. However, the average 

application, then assigns an individual or a cohort 

tenant contribution was determined by HUD’s published 

to review specific sections of the application. These 

guidelines for tenant contribution, which were higher than 

sections include program administration, income and 

the grantee’s calculations.

rent, experience, service and location, accessibility 

The 811 PRA Budget for Minnesota’s Programs indicates 

features, and environmental requirements.

that the 811 PRA rental assistance budget is set at 

Once the selection is approved by the 811 review 

50 percent of AMI. The section on Rents and Tenant 

committee, its recommendation is forwarded to the 

Contributions provides information on average contract 

Clearinghouse Committee, a decisionmaking group 

rent, subsidy and tenant payments. 

made up of a core staff drawn from all Minnesota 

Housing divisions. 

11  

Minnesota Housing did not target units with rents set at 30 percent AMI, because these units were already affordable to extremely low-income households. 

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Unit and Tenant Turnover

•  Minnesota’s state-funded Long-Term Homelessness 

Minnesota has not experienced any unit turnover yet. As 

Supportive Services provide services that can be 

mentioned previously, one applicant was recently housed 

tailored to individual needs. The program is designed 

in an 811 PRA unit.

to maximize independent living. Services include 

intensive case management, advocacy support, 

Service Provision and Coordination

support through treatment and recovery (including 

aftercare), and helping people get access to benefits.

Service Provision

Lastly, recognizing the need for additional services to 

The types of services available to 811 PRA participants 

support this population and program participants, in 

vary based on the program they enter. For instance, 

particular, DHS proposes to expand Medicaid funding to 

although both PATH and MFP provide transition services 

increase services in the fol owing programs.

in the form of downpayment assistance and moving 

•  Housing Stability Services provide additional outreach 

costs, MFP participants also receive funds to purchase 

capacity, as well as tenancy support services, 

furniture, groceries, and other household supplies.

community living assistance, and service coordination.

In addition, although both PATH and MFP participants 

•  PATH Critical Time Intervention uses a time-limited 

receive ongoing services, such as case management, 

case management model designed to prevent 

MFP participants will receive targeted home- and 

homelessness for people with mental il ness following 

community-based services for 60 days after they move 

their discharge from institutions. It focuses its 

from the institution to ensure their successful transition. 

intervention during that critical transition period to help 

DHS administers a variety of federal y funded healthcare 

individuals get settled in a more stable living situation.

services and other state and grant funded services 

•  1915(i) to support individuals with mental il ness 

that will be made available to all 811 PRA participants, 

provides indepth assessment as well as clinical 

regardless of target population. 

direction of services, development of recovery-

811 PRA program participants will have access to the 

oriented service plans, and other supports that foster 

fol owing Medicaid services.

independent community living.

•  1915(c) waivers for persons with disabilities provide 

Coordination of Services

a range of services, such as adult day care, assisted 

Participants can enter the 811 PRA program from either 

living, personal care assistant, transitional services, 

MFP or PATH programs. The sequence of steps and 

and transportation. Examples of waivers include 

coordination of service providers varies between the 

Developmentally Disabled, Traumatic Brain Injury, 

two programs.

and Community Access for Disability Inclusion, and 

Community Alternative Care. 

MFP.  Once participants are accepted into MFP, the case 

manager at the facility works with them to select a local 

•  Medicaid Home Care Services provide equipment 

lead agency for transition services.12 Local lead agencies 

and supplies and other home-based services, 

then assign an MFP transition coordinator to help the MFP 

including home health aides (HHA), personal care 

participants access transition services, including applying 

assistance (PCA), and private duty nursing.

for the 811 PRA program (through the Housing 

•  Medicaid Adult Rehabilitative Mental Health Services 

Coordinator). If an 811 PRA unit becomes available, the 

provide a comprehensive set of mental health 

MFP transition coordinator works with the Housing 

services, including Assertive Community Treatment 

Coordinator in assisting the MFP participant with the 

and Targeted Case Management.

application to the unit. If the participant is accepted to the 

Program participants will also have access to the 

unit, the MFP transition coordinator assists the participant 

following state- and grant-funded services.

with the logistics of the move, including arranging for 

transportation, making downpayment assistance, and 

•  Adult Mental Health Community Support Program 

helping purchase groceries, furniture, and supplies. 

provides a wide range of services focused on 

connecting people with resources, such as housing, 

Once participants are moved into the 811 PRA unit, 

health insurance, and employment support.

an MFP case manager is assigned to the participants 

to ensure they receive appropriate ongoing services 

12  

Local lead agencies working on MFP are typically private social services organizations, while PATH services are usually carried out by county governments or contracted service organizations.

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and supports. The MFP case manager is employed by 

The 2013 round of funding wil —

local lead agencies; sometimes both the MFP transition 

•  Provide services to the same target populations as 

coordinator and the MFP case manager are employed by 

in the 2012 funding round (long-term homeless with 

the same local lead agencies. The MFP case manager 

severe mental il ness and MFP populations).

is available to provide intensive case management for 

at least 60 days after the move-in date. This service is a 

•  Focus on the same statewide geographic areas.

voluntary option for participants. If a participant selects 

•  Leverage the same support services and staffing 

this service, the MFP Case Manager conducts a person-

arrangements. 

centered assessment of the participant and assists him 

The difference between the first and second round of 811 

or her in accessing HCBS. Ongoing case management, 

PRA grants is the manner in which Minnesota Housing 

after the initial 60-day period, is also available for up to 

will identify and develop potential 811 PRA units. For 

365 days, if needed. HCBS continues for as long as the 

its 2012 program, Minnesota Housing had proposed to 

participant requests it.

obtain 85 811 PRA units through existing properties. 

PATH. Compared with MFP participants, the process is 

For its 2013 program, Minnesota Housing proposes to 

somewhat simpler for PATH participants. PATH outreach 

develop 75 units through the annual Multifamily Request 

workers identify long-term homeless individuals who are 

for Proposal for new construction projects and draw on 

eligible for the 811 PRA program. Those interested in the 

applications from the existing portfolio. 

program are referred to the Housing Coordinator. The 

PATH outreach worker assists the PATH participant with 

Leveraging

the application. If an 811 PRA unit becomes available, 

the PATH outreach worker col aborates with the Housing 

Housing Choice Vouchers

Coordinator in assisting the PATH participant with the 

The St. Paul Public Housing Agency (PHA) and Metro 

application to the unit. If the participant is accepted 

Housing and Redevelopment Authority (HRA) each 

to the unit, the PATH outreach worker then assists the 

agreed to set aside 30 vouchers for 60 housing choice 

participant with the logistics of the move, including 

vouchers set aside for the target population as part of the 

arranging for transportation, making downpayment 

811 PRA program. The St. Paul PHA serves only the City 

assistance, and helping purchase groceries and supplies.

of St. Paul. The Metro HRA is a PHA that serves Anoka, 

Once a participant is moved into the 811 PRA unit, PATH 

Ramsey, Hennepin, and Carver Counties, excluding the 

outreach worker transitions out and a case manager 

cities of St. Paul, Minneapolis, Plymouth, Richfield, St. 

is assigned to the participant to conduct a needs 

Louis Park, and Bloomington.

assessment, develop a plan of service, and ensure he or 

Both PHAs agreed to do a one-time set-aside of HCVs 

she receives ongoing services and supports. 

for the target population. An HCV will be set aside for 

As a general observation, although participants entering 

the target population once it becomes available through 

the 811 PRA program from either program receive 

turnover. However, after HCVs provided to individuals 

HCBS, typical y 811 PRA participants that come in 

from the target population turnover, the HCVs will no 

through MFP will have access to a wider range of 

longer be set-aside for the program. HCVs will not be 

services and supports. 

al ocated all at once. PHAs will build up to the 60 voucher 

commitments over time. Minnesota Housing expects 

2013 811 PRA Application

that the HCVs set aside for the target population will be 

al ocated within a year. Minnesota Housing reported that 

HUD also awarded Minnesota Housing $3 mil ion in a 

24 HCVs were issued to the target population in 2015.

second round of 811 PRA funding in 2013 to develop 

an additional 75 units from new construction or for 

Other Sources Leveraged

use at existing developments. Picking the size of the 

second round funding request was easier for Minnesota 

Minnesota Housing set aside $50,000 in grant funds from 

Housing due to the experience it gained during the 2012 

its operating budget. The funds were earmarked to fund 

application process. By the time of the application for the 

environmental reviews that may be triggered as a result 

second round, the agency better understood its property 

of an owner exploring options to participate in the 811 

owners’ interest in the program, and it used historical 

PRA program. Minnesota Housing and Department of 

application data to identify potential y eligible properties 

Human Services committed to leveraging $350,000 and 

and units that would fit the program criteria. 

$385,848 in salary costs, respectively, as noted in the 

section titled Program Funding.

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Chapter 5. Minnesota Section 811 Project Rental Assistance Program

Program Administration, 

in the electronic Line of Credit Control System. LOCCS 

Assessment, Information Systems, 

then transfers the payment to Minnesota Housing. 

The agency then processes the funds and distributes 

and Data Infrastructure

payment to each property electronical y. 

Program Administration

Information Systems

Minnesota Housing and DHS co-manage the 

Minnesota Housing and DHS measure and track the 

implementation and administration of the Minnesota 

performance of the 811 PRA program by using a variety 

811 PRA program. Minnesota Housing enters into RACs 

of HUD, Minnesota Housing, and DHS systems. The 

and monitors for federal regulation and compliance. 

fol owing describes the systems used to col ect data and 

DHS coordinates referrals and manages the waiting list. 

measure outcomes of the 811 PRA program.

DHS also manages HCBS and makes sure that each 

HUD systems—

participant’s preferences are consistently central to 

•  TRACS is a web-based database col ecting data 

housing and services decisions. 

files that support the certification, recertification, and 

To monitor program performance, the 811 PRA program 

subsidy bil ing for HUD multifamily projects. TRACS 

manager, employed by Minnesota Housing, works 

provides authorized users with summary and status 

closely with the Housing Coordinator, employed by 

data on submitted vouchers. Minnesota Housing will 

DHS. Together, the Program Manager and the Housing 

use TRACS to accept, process, approve, and submit 

Coordinator work on—

voucher payment requests for all 811 PRA program 

•  Development of policies and procedures for housing 

projects. TRACS will also be monitored to ensure 

coordination and program performance. 

data compliance thresholds are met and all errors 

requiring correction are addressed by owners and 

○ This collaboration includes developing policies and 

their agents. Existing Minnesota Housing automated 

procedures for managing the waiting list, status of 

and accounting systems interface with TRACS and 

referrals, availability of units, housing placement, 

LOCCS to provide timely payments to owners.

and service connections. 

•  LOCCS is HUD’s primary grant disbursement system, 

•  Quality assurance, collecting and analyzing feedback 

handling disbursements for most of HUD programs. 

from participants as well as housing and service 

Once voucher data are submitted to TRACS 

providers. 

and approved for payment, a LOCCS payment 

•  Program evaluation, implementing system 

is triggered. On receipt of a LOCCS notification 

improvement initiatives, training and technical 

email, a pending State Warrant is prepared from the 

assistance, and reporting. 

payment detail that is uploaded from the LOCCS 

The Housing Coordinator is the central referral source 

email notification and sent to the State of Minnesota’s 

for 811 PRA units and works with service coordinators to 

Disbursement System. Once the funds noted in 

ensure access to housing and connections to services.

the LOCCS email have been received in Minnesota 

Housing’s bank account, the State’s Disbursement 

Financial Management

System sends an Electronic Funds Transfer to the 

owner’s account on the same day. As described more 

Minnesota Housing leverages its Performance Based 

completely in the section titled Minnesota Housing 

Contract Administration and Traditional Contract 

Systems, the Tracker system is an internal system that 

Administration (TCA) payment infrastructure to process 

keeps a complete record of the LOCCS deposits and 

811 PRA vouchers. The process for payment begins 

voucher payments made on behalf of each contract.

when the property owners or their agents submit 

the voucher and tenant data to Minnesota Housing 

•  Enterprise Income Verification is a web-based 

through Tenant Rental Assistance Certification System. 

database containing employment and income 

Minnesota Housing reviews this information, bundles all 

information about participants in HUD’s rental 

the property owner submission under its parent account, 

assistance programs. This information is made 

and sends the data to HUD via TRACS.13 If HUD accepts 

available to ensure “the right benefits go to the right 

the submission, the total amount for payment is reserved 

persons.” The income information displayed in this 

system is supported through a matching agreement 

13  

Parent account refers to the “parent voucher” for the entire state. Each individual Section 811 PRA property within the state that has a “child voucher.”

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between HUD, National Directory of New Hires and 

program. Col ected in MMIS are data elements from 

Department of Health & Human Services, and the 

data authorizations and paid claims, including data 

Social Security Administration. Minnesota Housing 

that will enable assessment of service usage and 

will use EIV to monitor the number and type of 

costs for healthcare and long-term services.

discrepancies associated with the 811 PRA Demo 

Certain data elements are regularly extracted from MMIS 

project and will assist projects in investigating and 

and maintained in a data warehouse for internal users. 

resolving errors with either tenant identifiers or 

For example, DHS uses MMIS to look up the current 

income data entered into TRACS.

service provider for a tenant.

Minnesota housing systems—

•  Federal Minimum Data Set is maintained by the 

•  Tracker is an integrated database linked to Housing 

Minnesota Department of Health and contains 

and Development Software and Minnesota Housing’s 

diagnosis, health, and functioning status.

accounting software. Tracker is the core tool 

•  Disability Linkage Line tracks referrals and services 

Minnesota Housing will use to manage, measure, and 

for all cal ers in its database.

drive performance of 811 PRA Demo requirements, 

including all dates, tasks, and outcomes (such as 

•  Waiting lists, surveys, and specialized data col ection 

RACs completed, inspection scheduled, inspections 

will be developed and used by DHS as needed. 

completed, rents paid, tenant income, and so on). 

•  For example, the Housing Coordinator at DHS will 

Tracker enables staff to easily pull all required HUD 

maintain a waiting list in Excel for all 811 PRA Demo 

quarterly program and budget data. 

participants. DHS wil  also track housing needs 

•  Housing and Development Software is what 

and barriers for MFP participants. MFP participants 

Minnesota Housing uses—for Section 8 purposes—

will also be asked to regularly join in a participant 

to receive, review, and complete final submission of 

experience survey.

TRACS files and monthly voucher payment requests. 

Including certifications, recertifications, terminations, 

Successes and Challenges

all tenant data files are logged into this Housing and 

Development Software database, as are Special 

Successes

Claims. TRACS data housed in this system can be 

Reaching unit goals under RAC.  Despite initial 

queried and provided in several report formats.

difficulties and with great effort, through 2015, Minnesota 

•  Surveys and other specialized data col ection will be 

has 67 811 PRA units under a RAC and expects to have 

designed, as needed, to support the performance 

all 85 units under a RAC by June 30, 2016. Although 

measurements required to analyze the program 

Minnesota still aims to reach the initial goal of 100 percent 

internal y and to report external y to HUD, DHS, and 

of the units leased by October 2016, achieving that goal 

other appropriate parties.

seems unlikely as only one unit is occupied and 66 of its 

67 units are currently “not available.” Turnover rates vary at 

DHS systems—

each property and are estimated based on historical data, 

•  Homeless Management Information System, or HMIS, 

but until vacancy occurs at turnover, 811 PRA applicants 

is used by Minnesota for all homelessness assistance 

will not have access to most of the units under RAC. 

programs, including supportive housing. With HMIS, 

However, given the limitations of this pilot program and 

PATH providers can enter data and provide reports on 

other market factors, this progress should be considered 

the PATH services received by the persons they assist 

successful as Minnesota had the second highest number 

in 811 PRA program units.

of units under RAC at year-end of all 2012 grantees. 

•  MAXIS is a computer system used by state and county 

Utilizing existing developments and finding good 

workers to determine eligibility for public assistance 

partners. Minnesota created a successful strategy 

and health care. For cash assistance and food support 

for identifying 811 units. First, it utilized developments 

programs, MAXIS also determines the appropriate 

with rent-restricted units or existing unsubsidized units 

benefit level and issues benefits. Certain data elements 

within Minnesota Housing’s Section 8 portfolio. The 

are regularly extracted from MAXIS and maintained in 

properties were already staffed with people who have 

a data warehouse for internal users.

administered federal housing programs, including staff 

that has coordinated supportive housing. Additional y, 

•  MMIS is a claims-based system that will be used to 

Minnesota Housing pursues partnerships with nonprofit 

look at service and health cost data to evaluate the 

property owners. Of the 10 property owners they were 

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in conversation with during the site visit, 9 are nonprofits 

challenges—HUD procedural delays, the booming rental 

and only 1 is for profit. In Minnesota, nonprofit owners are 

market in the Twin Cities, and property owner resistance.

more likely to want to participate in the 811 PRA program. 

A major chal enge in implementing this program has arisen 

Minnesota Housing has found that nonprofit owners are 

from HUD’s delays in (1) developing program guidelines 

mission driven and are already targeting their housing to 

and materials; (2) adjusting its data systems to work for 

the 811 PRA’s population. 

the 811 PRA program, such as LOCCS and TRACS; and 

Minnesota Housing has found a partner in Aeon 

(3) giving clear guidance on the program requirements 

Properties, a large nonprofit developer operating in the 

prior to receiving the cooperative agreement and program 

Twin Cities region. The agency secured three RACs 

regulations (for example, program design, environmental 

with Aeon that will make 55 units available to 811 PRA. 

requirements, the use agreement, budgeting parameters, 

Aeon currently administers about 1,200 units targeted 

completing the AFHMP, and how payments would be 

to reach and support homeless persons and persons 

made in HUD systems). It took more than 18 months from 

with disabilities. It currently participates in DHS’s Group 

the initial award for HUD to issue program materials and 

Residential Housing program and Hennepin County’s 

the cooperative agreement. 

Housing First program. 

The rental housing market in the Twin Cities 

Developing organizational structure for program and 

(Minneapolis-St. Paul and the surrounding communities) 

improving agency efficiency.  As mentioned previously, 

is on an upswing similar to that in many other metro 

given the small size of Minnesota’s 811 PRA program, its 

areas around the country. According to  StarTribune 

centralized design seems to fit its operations very wel .

(Minneapolis’ biggest newspaper), the average rent for 

The DHS Housing Coordinator is an integral key to 

a one-bedroom unit in the metro area was $859 in 2014 

program success. The coordinator has developed 

(higher in cities of Minneapolis and St. Paul;  StarTribune, 

systems and processes to work with the referring 

2014). This rent is much higher than the $740 figure that 

providers, applicants, and housing providers. Most 

would be al owable given the FMR requirement. Property 

importantly, the coordinator has established relationships 

owners are easily able to get market-rate rents for their 

with transition coordinators, PATH providers, and 

units, so Minnesota Housing chooses units that already 

property managers to quickly fill units as they become 

have rent restrictions so owners are not accepting lower 

available and to work on process improvements. 

rents when they participate in 811 PRA.

Minnesota Housing and DHS meet monthly to 

When implementing the 811 PRA program, Minnesota 

develop program implementation, check on progress, 

Housing has met significant resistance from property 

and address issues as needed. The DHS Housing 

owners. The requirement to enter into a 30-year use 

Coordinator and 811 PRA program Manager consult 

agreement and 20-year RAC, with 811 PRA funding 

regularly on an array of daily operational and 

guaranteed only for the first 5 years, proved to be difficult 

implementation issues.

for owners to accept. Most owners of tax credit properties 

have partners and investors who are concerned about the 

As a current PBCA, Minnesota Housing has very 

bottom line, long-term sustainability, and the future real 

experienced staff in place, which has proven to be a 

estate market. 

great advantage for program administration. Minnesota 

Housing’s experience has also provided the advantage of 

Under these long-term agreements, which are longer 

having systems in place to process payment vouchers and 

than the 15-year use restrictions for tax credit properties, 

receive payments from HUD. The agency has adapted an 

owners have a limited ability to increase rents to cover 

internal database structure used for PBCA to use for 811 

rising expenses or go to the market rate in the future. 

PRA program job tasks, data tracking, and reporting.

These agreements also limit owners’ ability to sell the 

property with the use restriction attached. Gaining buy-in 

DHS accesses multiple existing agency databases to 

from owners in these situations may require multiple 

verify applicant income and disability and track services 

discussions with investors and lawyers. 

provided to tenants.

Also owners have been reluctant to take on renters who 

Challenges

are new to them or are from unknown populations. The 

unknown factors can be many. To cite three examples, 

Securing units and attracting property owners to 

applicants may—

program due to HUD Section 811 PRA restrictions 

and requirements. Those implementing the 811 PRA 

•  Be referred from numerous types of institutions.

program in Minnesota have faced at least three major 

•  Have lived lives of long-term homelessness.

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•  Have complex or unfamiliar disabilities and service 

needs.

With the 811 PRA program, owners will not have a 

contractual relationship with the service provider, and 

each household could potential y have more than one 

service provider. Owners need assurance that they can 

contact someone if tenants are having a problem or need 

assistance to maintain their housing. Having the DHS 

Housing Coordinator as a central contact has helped to 

al eviate this concern.

Many owners have become comfortable (over time) 

providing supportive housing units for long-term 

homeless individuals and families using the current 

funding model, which requires the owner to have a 

partnership with a designated service provider. Owners 

are reminded that it is likely that they already have quite 

a few tenants with disabilities and receiving HCBS; they 

merely are not aware of it and do not need to be.

Educating and negotiating with property owners takes 

considerable time, and Minnesota Housing is trying to 

meet the 24-month timeline to have all 811 PRA units 

leased. Reaching ful , stabilized occupancy will also 

take considerable time as 99 percent of the properties 

currently under RAC are occupied and will not be 

available for 811 PRA tenants until turnover. 

Minnesota Housing has leveraged existing relationships 

with mission-driven developers who work with Minnesota 

Housing as partners to address the needs of low-income 

people in the state. These developers are wil ing to take 

the risk to embark on this new program, knowing they 

will have agency support to address issues as they 

arise. However, Minnesota Housing staff also note that 

they have had conversations with supportive housing 

property owners who expressed interest in adding more 

units for the target population to their properties but 

found out they were not eligible. Their participation would 

have exceeded the 25-percent limit for units targeted 

to nonelderly people with disabilities in a particular 

property.

Staff turnover. Staff turnover in the 811 PRA program 

has occurred, especial y on the services side. The current 

housing coordinator is the third person to assume this 

position. The staff member joined DHS in January on 

loan from one of the county governments. Moreover, 

considerations exist for funding this position during the 

long term. The housing coordinator position is funded 

through MFP, which is in year 2 of a 5-year grant. The 

Minnesota 811 PRA program will have to find other sources 

of funding for this position or restructure its program.

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

Pennsylvania Section 

the PBCA for the Commonwealth of Pennsylvania, 

administering Section 8 contracts representing 45,000 

811 Project Rental 

units across the Commonwealth. PHFA al ocates LIHTCs 

and administers Tenant-Based Rental Assistance (TBRA) 

programs statewide.

Assistance Program 

DHS, the key state-level supportive services partner 

in the 811 PRA program, administers Medicaid for the 

Commonwealth, one of the country’s largest Medicaid 

programs. DHS had built up supportive housing experience 

prior to the 811 PRA program award. Within DHS, four 

Introduction

agencies play key roles in the funding or provision of 

services to the 811 PRA program target populations. 

HUD awarded Pennsylvania $5,870,880 to administer 

•  The Office of Mental Health and Substance 

a Section 811 Project Rental Assistance program in the 

Abuse Services (OMHSAS), an office within DHS, 

2012 funding round. The ful y executed Cooperative 

administers programs for people with serious mental 

Agreement was not received from HUD until October 

illness, as well as the Medical Assistance Program, 

30, 2014. Under this program, the Pennsylvania Housing 

which covers both mental health and co-occurring 

Finance Agency (PHFA) and its partner, the Pennsylvania 

disorders. OMHSAS also manages a small number 

Department of Human Services (DHS), anticipate 

of state-run psychiatric hospitals and monitors 

housing nonelderly adults with disabilities in 200 housing 

funding to counties administering services through 

units. The units wil  be located statewide throughout 34 

block grants, coordinates other funding sources 

regions served by local lead agencies. These regions 

to provide education, and services for people 

are mostly single counties, but in three cases the 

transitioning into community-based settings. In 

regions are composed of multiple counties. Beyond the 

many cases, OMHSAS will also coordinate services 

statutory eligibility requirements of the 811 PRA program, 

for people after their placement.

Pennsylvania prioritizes—

•  The Office of Developmental Programs (ODP) 

1.  Individuals living in institutions who are able to live in 

administers programs that provide supportive 

the community with permanent supportive housing. 

services and care for people with cognitive and 

2.  Individuals at risk of institutionalization without PSH.

intel ectual disabilities (including persons with 

3.  Individuals living in congregate settings who desire to 

autism), and people with physical disabilities. ODP 

move to the community. 

manages five state-operated intermediate care 

facilities for people with intel ectual disabilities. ODP 

At the time of the site visit in October 2015, only 1 of 

provides funding, coordination, and transition support 

34 local lead agencies had begun implementation. 

for people with intel ectual disabilities in the 811 PRA 

Pennsylvania chose Dauphin County to act as a pilot site, 

program. It will also provide continuing services to 

helping to test and refine the 811 PRA program. 

individuals after they have moved into the unit.

As of October 2015, no individuals had been housed 

•  The Office of Long-Term Living (OLTL) helps identify 

through the program. However, by the close of 2015, one 

housing solutions for people with disabilities who 

RAC had been signed, representing two units, and one 

currently reside in institutions. OLTL provides community 

unit was occupied.

transition services, including financial assistance, for 

Grantee Partnership, Organizational 

people moving to community-based settings. 

Structure, and Management

•  The Office of Medical Assistance Programs (OMAP) 

purchases health care for more than 2.3 mil ion 

people in Pennsylvania, administering the Medicaid 

Partnerships and Organizational Structure

program. OMAP works with providers to process 

PHFA is Pennsylvania’s 811 PRA program grantee. 

claims, establish rates and fees, and contract with 

For the past 40 years, PHFA implemented and 

managed care organizations.

operated programs to increase affordable housing 

available to low- and moderate-income households. 

Programs include multifamily rental and single-family 

homeownership programs. PHFA also serves as 

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

Partnership Between PHFA and DHS

PHFA and DHS continue to perform their roles and 

PHFA and DHS have developed partnerships around 

responsibilities as were original y described in the 

supportive housing programs for both elderly and 

program application and detailed in table 6.1. 

nonelderly people with disabilities, most notably 

Pennsylvania’s 811 PRA program relies on a system of 

through the Rental Subsidy Fund initiated in 2005. 

community-based organizations that serve as local lead 

Pennsylvania’s 811 PRA program is modeled after this 

agencies in each county or for multiple counties. DHS 

program, through which PHFA uses developer fees to 

recruits and cultivates relationships with community-

create units affordable to households with incomes at 

based organizations in each county and approves them 

or below 20 percent of AMI. These units are dedicated 

to serve as local lead agencies. Various agencies can and 

to extremely low-income people with disabilities. DHS 

do serve as local lead agencies, including county human 

coordinates services for people with disabilities residing 

services departments, behavioral health departments, 

in the units. Because this structure already existed, 

Community Action Agencies, local service provider 

Pennsylvania made progress implementing the 811 PRA 

organizations, and other nonprofit groups. This system 

program despite key staff turnover in the years fol owing 

has been used in Pennsylvania for the Rental Subsidy 

submission of the 811 PRA program grant application.

Fund program, another supportive housing program using 

PHFA and DHS worked together as partners on the 

LIHTC-financed units affordable to people with disabilities 

application approach and program design and structure, 

who are at or below 20 percent Area Median Income. DHS 

and they col aborated on decisions related to 811 PRA 

expects to hire a staff person to act as a ful -time liaison 

program implementation. In addition, both agencies 

with all 34 local lead agencies involved in the program.

conducted outreach and marketing to encourage 811 

Local lead agencies engage service providers, creating 

PRA program participation. As a result, PHFA and DHS 

formal referral relationships with chosen property 

feel a shared responsibility over the role of “grantee,” 

managers and landlords, and coordinate housing 

meeting weekly to review issues and track 811 PRA 

transition and services for participants. Designated local 

program progress. 

lead agencies in each of the participating counties wil  

Overview of 811 PRA program structure. 

serve as the single point of contact and central intake for 

Pennsylvania’s 811 PRA program is expected to 

the 811 PRA program serving their area. 

operate statewide, with nearly all counties (58 out of 67) 

Although the 811 PRA program is still in the early 

participating. The organizational structure and design 

implementation stage in Pennsylvania, the partners expect 

features have not changed since Pennsylvania submitted 

the model will rely on local lead agencies to organize a 

the program application to HUD in 2012.

group of stakeholders that serve their target populations. 

These stakeholders will serve as referral sources to link 

Table 6.1: Pennsylvania — 811 P R A Program Roles and Responsibilities

Pennsylvania Housing Finance Agency

Department of Human Services

• 

• 

Recruit and collaborate with local lead agencies responsible for implementing 

Identify or finance eligible units for 811 PRA program.

the program.

•  Execute Rental Agreement Contracts with property owners.

•  Oversee referral process in collaboration with local lead agencies.

•  Perform outreach to developers, landlords, and property owners.

•  Provide outreach, training, and technical assistance to local lead agencies.

•  Monitor 811 PRA program unit occupancy and compliance with eligibility 

•  Monitor local lead agencies processes on prioritizing individuals for housing 

requirements.

placement.

• 

• 

Monitor local lead agencies processes, ensuring tenants have necessary access 

Make rental payments to property owners.

to housing and support services.

•  Collect and report required occupancy and financial information. 

•  Collect and report data on service delivery, costs, and outcomes. 

•  Provide ongoing communication with Department of Human Services, local lead  •  Provide ongoing communication with Pennsylvania Housing Finance Agency, agencies, and housing providers.

local lead agencies, and housing providers.

PRA = Project Rental Assistance.

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

eligible persons to the 811 PRA program. Local lead 

for eligible activities, such as outreach and engagement 

agencies will review units chosen by PHFA and DHS and 

of local lead agencies and data collection on tenant 

refer potential eligible tenants to property managers with 

outcomes. All fees must be documented, and PHFA wil  

vacant 811 PRA program units. 

col ect and retain records on administrative costs.

With assistance and oversight from DHS and PHFA, 

local lead agencies wil  manage the outreach and 

State Context: Housing Programs

referral process, oversee the waiting list for program 

Each State administers a number of key waivers that are 

participation, provide housing assistance, and ensure 

critical to the functioning of the program. The key waivers 

coordination of support services. Local lead agencies 

by state fol ow. 

will sign a memorandum of understanding with each of 

the community stakeholders and properties, outlining 

Housing

each party’s commitment to the tenants of the 811 PRA 

Pennsylvania operates its housing and social services 

program. This county-based program model aligns with 

programs in a decentralized way, with programmatic 

the Commonwealth’s overall decentralized model of 

and policy decisions often made at the county level. 

housing and service provision.

PHFA and Department of Community and Economic 

Pennsylvania began program implementation with 

Development (DCED), the two primary agencies 

Dauphin County, the home to Harrisburg, the state capital. 

that administer housing programs, provide funding 

The county is geographical y diverse, with both urban 

to initiatives designed at a local or county level. 

and rural areas; it has some areas near to service hubs 

Pennsylvania has some of the most urban counties in the 

and transportation (such as downtown Harrisburg) and 

country, but also large regions of rural counties (most 

other areas not as connected to service centers or public 

notably the “Rural T,” positioned in the middle of the 

transportation. Furthermore, PHFA has a wel -established 

state), resulting in a range of housing needs and local 

relationship with Pennrose Properties, LLC, a large 

priorities. In this way, implementing the 811 PRA program 

property developer with available units in Dauphin County. 

across the Commonwealth, with its requirement for local 

adherence to a single set of eligibility requirements and 

Dauphin County was selected as the first pilot local lead 

program features, would be an achievement. 

agencies because it met the following criteria.

Existing housing programs for nonelderly people 

•  Local lead agencies has signed memorandum of 

with disabilities. PHFA is a state-affiliated agency 

understandings or anticipated memorandum of 

that administers programs and funds on behalf of the 

understandings with property owners or property 

Commonwealth government and the federal government. 

developers.

For more than 10 years, PHFA has committed 

•  Local lead agencies has met with and signed 

considerable resources toward supportive housing 

memorandum of understandings with service 

initiatives. In 2005, DHS and PHFA implemented the 

agencies.

Rental Subsidy Fund to help move extremely low-income 

•  Local lead agencies has conducted outreach to 

people with disabilities out of nursing homes and into 

institutional staff and outreach staff to obtain priority 

housing in the community. PHFA has not created a 

one referrals.

specific budget for this program, but instead includes it 

as a preference in the annual LIHTC al ocation. Funded 

•  Local lead agencies has provided a sufficient 

through developer fees, this program has subsidized 

level of communication with the Regional Housing 

rents in approximately 570 supportive housing set-asides 

Coordinator (RHC). 

to provide affordable housing for people with disabilities. 

•  Local lead agencies has developed and managed 

In 2008, PHFA expanded its commitment to community-

waiting lists.

based housing for people with disabilities by setting aside 

Program financial structure. The 811 PRA program 

5 percent of tax credits for properties with supportive 

budget provides $434,880 in administrative funds, or 8 

housing units. To qualify, properties must set aside no 

percent of the total rental subsidy amount. For the first 6 

more than 25 percent of units in a single property for 

months, PHFA and DHS each receive 50 percent of the 

supportive housing target populations (including people 

al owable administrative fees to cover the startup costs 

experiencing homelessness or at risk of homelessness, 

associated with the program. After the first 6 months, 

people with disabilities, people with HIV, and veterans), 

PHFA and DHS agreed that PHFA will receive 90 percent 

Rents could not exceed 30 percent of tenant income. 

of the administrative grant fees, with DHS using 10 percent 

Beginning in 2009, PHFA required that any developer 

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

seeking LIHTCs for multifamily rental housing must 

Federal y funded public housing and Section 8 housing 

set aside 10 percent of units for households with 

vouchers are also important sources of affordable 

incomes at or below 20 percent of AMI, including DHS 

housing for people with disabilities in Pennsylvania. 

target populations, such as people living in or at risk 

Pennsylvania has 61,290 units of public housing, 

of institutionalization, people with disabilities who are 

90,002 HCVs, and 59,656 units of Section 8 housing. 

homeless or at risk of homelessness, adults with autism, 

Approximately 42 percent of nonelderly households, 

and youth aging out of foster care. As a result of this 

in which the head or spouse is under age 62, residing 

provision, from 2009-2015, PHFA has added 1,425 set-

in public housing units have a disability (HUD, 2016). 

aside units for households at or below 20 percent of AMI.

The head of household or spouse has a disability in 42 

Pennsylvania anticipated that the 811 PRA program 

percent of nonelderly households housed through HCVs 

would provide additional long-term rental subsidies for 

and 39 percent in Section 8 housing (HUD, 2016). 

nonelderly people with disabilities. In this way, the 811 

Of the HCV inventory, between 1997 and 2009, 

PRA program would serve to expand the Rental Subsidy 

Pennsylvania was awarded 2,054 vouchers across the 

Fund Program, although for a more targeted population 

Commonwealth under the Non-Elderly Disabled Category 1 

as the 811 PRA program requires.

Voucher program. The Dauphin County Housing Authority 

Other affordable housing programs in Pennsylvania that 

was awarded 10 vouchers under NED2 in 2010. The 

may also serve persons with disabilities are— 

first NED program al ocated vouchers to Public Housing 

Authorities (PHAs) to provide to nonelderly people with 

•  HOME TBRA.  PHFA administers two similar TBRA 

disabilities who wanted to access affordable housing in 

programs, one of which is only for households with a 

the private market; NED Category 2 program is specifical y 

person with a disability. HOME TBRA aims to hasten 

intended to enable nonelderly people with disabilities living 

access to community-based housing through rent 

in institutions to move into private housing. Both NED 

subsidies. The amount of rental assistance is based on 

programs are designed to provide supportive services for 

Fair Market Rent using the appropriate bedroom size for 

those persons utilizing the vouchers (HUD, n.d.).

the household. The maximum subsidy is the difference 

between 30 percent of the household’s adjusted 

The other state agency that administers housing programs 

income and the FMR for the county. From program 

and funds for low-income populations is the DCED. This 

inception (2008) to the time of the site visit, PHFA has 

agency administers the Emergency Solutions Grants 

housed 150 households through this program. 

Program, which provides funding for services and 

facilities serving people experiencing homelessness, al  

•  Supportive Housing Set-Aside. This effort by 

whom have extremely low incomes and many of whom 

PHFA sets aside 5 percent of LIHTC funds to develop 

have a disability. In addition, DCED administers funds for 

community-based supportive housing and has 

specialized programs for homeless populations, such as 

produced nearly 550 units of housing since 2008. This 

the Supportive Services for Veteran Families program, a 

program is separate and distinct from the 10-percent 

new rapid rehousing pilot program, targeted to homeless or 

set-aside previously mentioned. 

at-risk veterans and their families. Although DCED does not 

•  Homeless Assistance Program (HAP). HAP 

participate in the 811 PRA program, PHFA indicated that 

is administered by DHS and provides people 

DCED is wel -informed and supportive of the initiative. 

experiencing homelessness or at risk of becoming 

Trends in the production of supportive housing. 

homeless with financial assistance for rent and utility 

Since the early 2000s, Pennsylvania has implemented 

assistance and case management to help move them 

policies that expanded options for people with disabilities. 

toward self-sufficiency. 

PHFA provides incentives to produce community-based 

•  Emergency Shelter Allowance (ESA).  This DHS 

housing for people with disabilities in the Commonwealth. 

program works with low-income families and 

Pennsylvania has established a priority for the allocation 

individuals—including extremely low-income people 

of LIHTCs in its Qualified Al ocation Plan to properties 

with disabilities—who are experiencing homelessness 

that include units for extremely low-income people 

or at risk of homelessness to help them avoid 

with disabilities. A top concern in state housing policy 

eviction or secure housing. The county department 

is to move people from institutions to community-

administering the funds coordinates with HAP to 

based settings, and people with disabilities are a 

combine HAP’s funds with ESA’s to prevent or end the 

priority population in the DHS’s forthcoming housing 

household’s housing crisis. 

plan. Although the policy shift is recent, PHFA began 

committing considerable resources to supportive housing 

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

initiatives more than a decade ago. PHFA also gave robust 

occupancy was not available. Services should be reviewed 

preferences for new construction of supportive housing 

to determine if a link exists between specific types of 

through the QAP, to expand the inventory of units set aside 

services and successful long-term occupancy of 811 PRA 

for people with disabilities. According to Pennsylvania’s 

units. Given that one of the chal enges noted by grantees 

2012 811 PRA program application, PHFA has financed 

is the uneven provision of services throughout the states, 

more than 1,250 units of accessible and affordable 

service mapping would be a useful tool in developing 

housing (including some supportive housing) to extremely 

individual service plans for potential tenants in locations 

low-income populations during the past decade. 

where services are less abundant.

At the time of the site visit in October 2015, the state 

DHS has worked on supportive housing initiatives with 

budget was not enacted, and the state’s Housing Trust 

PHFA for the past decade. DHS has developed capacity for 

Fund only had revenue to support housing activities in 

supportive housing through a series of initiatives targeted 

communities with active Marcel us Shale wel s. (Marcel us 

to institutionalized populations and people with disabilities. 

Shale is sedimentary rock buried thousands of feet 

During the past 5 years, DHS built and supported the local 

that runs north, south, and through Pennsylvania.) In 

lead agencies infrastructure and initiated a RHC Program, 

November 2015, Governor Tom Wolf signed Act 58 

as explained in Existing Efforts section that fol ows. The 

into law, which dedicates a portion of the increase in 

811 PRA program was designed and implemented using 

the Realty Transfer Tax into the Pennsylvania Housing 

the local lead agencies model as its foundation. 

Affordability and Rehabilitation Enhancement (PHARE) 

Fund, the Commonwealth’s HTF. PHARE provides a 

Policy and Funding: Prioritization of Medicaid 

mechanism by which al ocated Commonwealth and 

Resources Toward Home- and Community-

federal funds can be used to create or rehabilitate 

based Services

affordable housing for Commonwealth residents, 

Between 2008 and 2014, total Medicaid spending 

including very low-income seniors and people with 

increased from about $16 bil ion to $23.6 bil ion statewide, 

disabilities. The only specific legislative requirement of 

a 45.4-percent increase. Funding for long-term services 

PHARE is that 30 percent of the funds benefit households 

and supports went from approximately $7 bil ion in 2008 to 

with incomes below 50 percent of AMI.

$8.3 bil ion in 2013 (Eiken et al., 2015; KFF, 2017). HCBS, 

Rental housing market. The rental housing market across 

as a portion of LTSS also increased during this period, 

Pennsylvania varies. Although the rental housing market 

indicating the continuing trend of decreased funding for 

is tight (less than 5 percent of vacant units) in the urban 

institutionalized care and increased funding for community-

areas, in the more rural areas of the Commonwealth, plenty 

based services and supports. HCBS funding increased 

of rental vacancies exist. Housing affordability also varies 

from about 30 percent of LTSS in 2008 to 41.9 percent in 

by county, with fewer affordable units in the tighter rental 

2013; however, this increase is below the national average 

markets. The National Low Income Housing Coalition 

of 51.3 percent (Eiken et al., 2015). Between 2008 and 

(NLIHC) estimated that a statewide shortage exists of more 

2013, overall funding for HCBS increased 64.2 percent, 

than 280,000 affordable units for extremely low-income 

and funding for institutional Long Term Support Services 

populations (NLIHC, 2016a). Although rental housing is 

decreased nearly 2 percent. This shift in funding again 

available in most rural areas, access to transportation 

shows the Commonwealth’s priority toward community-

and services are often problematic, causing people to 

based services (Eiken et al., 2015). 

travel long distances to access services. Furthermore, 

Despite the overal  Medicaid spending increase, waiting 

NLIHC’s research found that many units in Pennsylvania, 

lists exists for some of the Medicaid waivers that help serve 

“…particularly in areas with high vacancy rates, that may 

nonelderly people with disabilities, although Money Follows 

rent for affordable prices may be in such poor condition 

the Person helped to reduce some waiting lists.14 The 

that they are not suitable living environments” (Mierzwa, 

various agencies serving nonelderly people with disabilities 

Nelson, and Newburger, 2010).

noted an expansion of need, which has put a strain on the 

pool of available direct service providers. At the time of the 

Service Provision and Healthcare

site visit in October 2015, the state budget had not been 

Access to services is necessary for the successful 

passed. The funding for services expected to be used 

transition to community-based living. Due to the smal  

in the 811 PRA program was largely through Medicaid 

number of occupants at the time of the site visits, specific 

(Home- and Community-Based Waiver), MFP, and other 

data on service mix and the role services play in continued 

rebalancing funds. 

14  

From 2008 to the fall of 2015, 2,136 people have transitioned out of institutions through MFP.

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

Existing Efforts

•  Projects for Assistance in Transition from 

DHS has programs that support community-based-

Homelessness (PATH).  The PATH program provides 

living housing and moving people from institutions to 

funding for services to individuals who have a mental 

community-based settings. The following programs wil  be 

il ness or a co-occurring substance abuse disorder 

involved in providing assistance in the 811 PRA program. 

and who are experiencing homelessness or are at-risk 

of homelessness. 

•  Regional Housing Coordinator Program. This 

initiative is a state program that funds 10 housing 

•  Home Modification and Assistive Technology 

experts statewide to act as liaisons between the 

Initiative.  Funded through OLTL, this initiative targets 

housing and service systems, working with housing 

seniors and people with disabilities served by OLTL 

providers and Nursing Home Transition (NHT) 

waiver programs. Its aim is to increase the number 

Program coordinators to help people with disabilities 

of people who are living safely and independently 

achieve their housing goals. Implemented in 2003, 

in their own homes by improving the quality of 

this program, partially funded through MFP, has 

their homes. This increase is achieved by providing 

resulted in the widespread use of the Prepared 

funding to make home modifications or secure 

Renters Program (PREP), which helps prepare 

necessary technical resources. 

people in institutions to become successful renters. 

•  SSI/SSDI, Outreach, Access, and Recovery 

In some counties, RHC Program secured local PHA 

(SOAR).  The SOAR program helps people who 

preferences for people with disabilities. 

are experiencing homelessness or at-risk of 

•  Nursing Home Transition Program.  This program 

homelessness and who have a mental il ness or 

provides financial assistance (up to $4,000) and 

co-occurring disorder access Supplemental Security 

transition support services to people moving from 

Income or Social Security Disability Insurance 

nursing homes to community-based housing. The 

benefits, which may lead to eligibility for Medicaid and 

Commonwealth launched this program in 2008 and 

access to supportive housing. 

funds it annual y. There are 52 Nursing Home Transition 

Olmstead Plan and Settlements

partners serving people ages 60 and over, and 13 

Nursing Home Transition partners serve people under 

In 2011, Pennsylvania’s OMHSAS proactively developed 

the age of 60. Area Agencies on Aging are the 52 

an Olmstead plan for the State Mental Health System. 

organizations serving the over-60 population. 

Updated in 2015 and undergoing an internal review 

process, Pennsylvania reissued the plan in 2016. The 

Other programs that serve people with disabilities, and 

state-level plan targets individuals with mental il ness, 

therefore may also serve the 811 PRA program target 

focusing on diversion and transitioning people out of 

populations, include the following.

state psychiatric hospitals and into community settings. 

•  OMHSAS and HealthChoices.  Since 2008, 

Toward the goal of deinstitutionalization, Pennsylvania 

OMHSAS and the county-based behavioral health 

has closed three state hospitals between 2006 and 2010. 

HealthChoices Medicaid managed care contractors 

The updated Olmstead plan identifies the 811 PRA 

have al ocated more than $130 mil ion in Medicaid 

program as a new funding source for integrated housing 

reinvestment (savings) funds to develop supportive 

in the Commonwealth. The plan’s priorities are consistent 

housing and related programs. HealthChoices 

with Pennsylvania’s 811 PRA program priorities, making 

programs are given options to target funds into 

the 811 PRA program an excel ent resource for furthering 

Project Based Operating Assistance (managed 

Pennsylvania’s efforts to provide housing and supports 

through agreements with PHFA, bridge rental 

in the most integrated setting possible for people with 

subsidy programs, target capital funds, local housing 

disabilities identified with serious mental il ness.

clearinghouses, contingency funds, master leasing, 

and housing support services. Most programs 

The plan references the six PHAs in Pennsylvania that 

allocate funds across multiple categories.

committed a col ective 151 HCV or public housing units 

for people with serious mental il ness. The plan also 

•  Community Hospital Integration Projects 

requires that counties have local Olmstead plans specific 

Program. This program is a state initiative that 

to the mental health system, either on their own or in 

partners with local county mental health agencies 

partnership with other counties in their region. Each local 

to help transition people in state hospitals who have 

plan will specify the support services and infrastructure 

extended lengths of stay or complex service needs to 

need to be developed to meet the needs of people being 

community-based programs and supports.

discharged from state hospitals. Counties that host the 

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

six PHAs that committed units to the 811 PRA program 

and administer. Once Pennsylvania determines how and 

are aware of the preference for people with serious 

if it will al ocate 811 PRA program units geographical y, it 

mental il ness and understand their role in making 

will be easier to predict how this program will unfold and 

referrals and providing supportive services to individuals 

how production goals will be met. 

as they move into integrated housing. 

Also, three Olmstead-related lawsuits have been filed, 

Population Served

one with OMHSAS and two with the ODP. As a result, 

Pennsylvania’s 811 PRA program serves the population 

three settlements were enacted, resulting in Pennsylvania 

in accordance with HUD-established criteria, such 

undertaking major remediation actions by moving 

as: extremely low-income people between the ages 

people from institutions to community-based settings. 

of 18 and 61 who have a disability and are eligible for 

OMHSAS’s settlement is known local y as “Fred L. 

Medicaid services. Pennsylvania further prioritizes 

Settlement” and ODP’s two settlements are known as 

people with physical disabilities, intel ectual disabilities, 

the “Jimmie Settlement” and the “Benjamin Settlement.” 

and mental il ness disabilities. Pennsylvania targets the 

•  Fred L. Settlement.  The case was filed in September 

811 PRA program’s resources by prioritizing the three 

2000. The result was an agreement in 2004 to 

subpopulations described. 

conduct 210 discharges during a 4-year period at 

•  The Priority 1 population consists of people who 

Norristown State Psychiatric Hospital. The discharges 

are institutionalized, but who are able to live in the 

were conducted in phases of 30, 30, 60, and 90 

community in PSH. Institutions include, but are not 

people being discharged at a time. All 210 discharges 

limited to, mental health hospitals, nursing facilities, 

were completed by 2012.

and immediate care facilities for persons with 

•  Jimmie Settlement. This case was a class action 

intellectual disabilities.

lawsuit challenging the unnecessary segregation of 

•  The Priority 2 population consists of people who 

individuals with a dual diagnosis of serious mental 

are at risk of institutionalization in the absence of 

il ness and intel ectual disability in state psychiatric 

PSH. This population includes, but is not limited to, 

beds. This settlement resulted in the provision of 

people who are living with elderly caregivers or in 

discharge planning for class action lawsuit members 

unstable situations; homeless; aging out of the Early 

over the course of 3 years. 

and Periodic Screening, Diagnosis and Treatment 

•  Benjamin Settlement. This settlement resolves 

Program with no family support; and individuals aging 

a class action lawsuit filed against DHS al eging 

out of foster care.

that DHS unnecessarily segregated people in state 

•  The Priority 3 population consists of people who 

Intermediate Care Facilities for Individuals with 

are currently residing in congregate settings who 

Intel ectual Disabilities. The settlement requires DHS 

want to move into the community. This population 

to provide community placements to class members 

includes, but is not limited to, people in community 

to move to and stay in the community (should they 

residential rehabilitation facilities, long-term structured 

choose to do so) by June 30, 2018. 

residences, personal care homes, and domiciliary care.

Pennsylvania has completed the Jimmie Settlement 

Local lead agencies will have some discretion over 

discharge planning. In the 18 months since the Benjamin 

additional eligibility criteria for the 811 PRA program, 

Settlement was enacted, Pennsylvania has moved 46 

depending on local needs and priorities. For people to 

people from state institutions to the community or to 

be considered eligible for the Dauphin County 811 PRA 

group homes, with considerable help from ODP.

program pilot (the only site implemented as of October 

At the time of the site visit, the Pennsylvania 811 PRA 

2015), they must meet the basic criteria for the 811 PRA 

program was in the beginning stages of implementation. 

program and be receiving medical assistance for one of 

As planned, the program could involve 58 of the 

the following disability categories.

Commonwealth’s 67 counties. The effort required to 

•  Adults with autism.

implement an involved program like the 811 PRA program 

•  Intellectual disabilities.

across such a large geographic area is enormous, 

especial y because each county has its own unique 

•  Physical disabilities.

characteristics and issues. Also, working with the wide 

•  Serious mental il ness.

network of local lead agencies and their service provider, 

partners makes this program challenging to implement 

•  Transitional age youth with disabilities.

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

At the time of the site visit, Pennsylvania had not yet 

service providers, assisting people with disabilities that 

housed anyone through the Dauphin County pilot 

fall into one of the three priority populations, but local lead 

program, but conversations with both PHFA and DHS 

agencies ensure that sufficient stakeholders are involved 

indicate that the actual population served will be the 

to represent all disability groups and priority populations 

same as the population proposed in Pennsylvania’s 811 

for the 811 PRA program. The service providers conduct 

PRA program application. 

outreach to people who are already in existing programs, 

A potential issue that may arise with the targeted 

such as nursing home facilities, or by RHC Programs 

population relates to geography. It was not clear if enough 

through the NHT Program. People who are ready to live in 

people or units in each county across the Commonwealth 

a community-based setting or are about to be discharged 

were going to meet the criteria for the 811 PRA program. 

are prescreened by the service provider, who helps 

PHFA and DHS seemed certain that units in Philadelphia 

interested applicants to secure necessary documentation.

and Pittsburgh could be fil ed quickly given the number 

Once referral source representatives confirm a potential 

of nonelderly people with disabilities currently served by 

tenant is interested in participating in the program, the 

nursing homes and other institutional settings in those 

service provider assists the individual in fil ing out an 

areas who are ready to move to a community setting. 

application for the 811 PRA program and other area 

However, in more rural parts of the state, it was less clear 

supportive housing. Pennsylvania plans to use the web-

if they were going to have the right number of people to 

based SocialServe system as its applicant tracking, 

match the number of units. 

waiting list and reporting system; however, the system is 

Another potential issue that arose is mismatch between 

not yet ful y implemented. Once the system is operational, 

the size of the available units (based on bedroom 

information, such as the priority population the individual 

size) and the needs of the target population, which is 

fal s into, federal housing eligibility information, 

composed mostly of individuals needing one-bedroom 

demographic information, disability information, and 

units. Although only one Rental Assistance Contract for 

income information, will be entered into SocialServe and 

two units had been executed in Dauphin County thus 

the local lead agencies will be notified of the referral. 

far, the RAC is for two-bedroom units because those 

When the application is complete and the referral 

were the unit sizes available. According to PHFA and 

is determined to be eligible, CACH then reviews the 

DHS, this issue may also be present in other areas of the 

information for completeness, and the referral is 

Commonwealth as wel .

brought to the monthly stakeholder meeting. CACH 

presents the referral to the entire group, and together 

Outreach, Referral, and Application

the stakeholders make a determination on eligibility. 

Once the application is complete and the referral is 

Because Dauphin County is the only site that has begun 

determined eligible, CACH places the individual on a 

implementing the program, this section reviews its client 

waiting list and notifies the individual and the referring 

flow processes. Although representatives from the 

agency of his or her acceptance. The SocialServe 

Mental Health and Intel ectual Disabilities office, NHT, 

software will contain an automated waiting list function 

and RHC likely will be in most or all local lead agencies 

in the future. For the time being, CACH will develop and 

across the Commonwealth, the direct service providers 

maintain its own waiting list. 

likely will vary based on the service area.

When a unit becomes available, CACH inspects the 

Although other local lead agencies may do things slightly 

unit to determine whether it will meet the needs of the 

differently than Dauphin County, PHFA and DHS expect 

person next on the waiting list, such as wide doorways 

Dauphin County’s implementation processes to be a 

or an accessible shower. If the unit is appropriate, the 

model for other local lead agencies.

individual visits the unit (or more than one if more than 

In Dauphin County, the Capital Area Coalition on 

one unit is available), chooses a unit, and applies for 

Homelessness (CACH) serves as its local lead agencies. 

housing. The property manager or owner wil  determine 

Outreach to potential applicants and referrals occur at 

applicant eligibility for the unit. Once the application is 

the county level. CACH entered into memorandum of 

approved, the individual moves into the unit. The referring 

understandings with al  collaborating agencies (called 

agency helps the potential tenant visit the unit, complete 

stakeholders) in the county. Stakeholders include the 

the application, and coordinate the physical move. The 

county’s Mental Health and Intel ectual Disabilities office, 

program under which the individual receives services may 

NHT coordinator, RHC, and other direct service providers 

have a set-aside of funds to assist with move-in costs and 

serving the target population. Most stakeholders are direct 

security deposits. 

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

As of June 2015, three referrals were to this site; however, 

Mental Health and Developmental Services programs. 

two of the referrals (both persons who were homeless) 

The service provider voiced concerned about having to 

were deemed ineligible. The third person was referred from 

absorb increased costs if applicants move in from another 

a nursing home and moved into a unit in December 2015. 

county and request services in the new county. Referrals 

The memorandum of understanding details the roles and 

from other counties could increase the caseload of their 

responsibilities of al  stakeholders, including the local lead 

staff and pose an administrative and service coordination 

agencies. Those responsibilities are described in table 6.2.

burden on the local lead agencies. This decentralized 

approach can be difficult to coordinate at times, but is 

One issue that the Dauphin County local lead agencies 

beneficial with regard to the local lead agency being very 

noted was the potential for the temporary loss of services 

familiar with their clients, the area, and the local providers 

if an applicant moves across counties to participate 

so that they ensure each applicant’s needs are met.

in the 811 PRA program. If an individual is receiving 

services through medical assistance, then the individual 

Housing Strategies

is enrol ed with medical assistance and the transfer 

between HealthChoices plans should not result in an 

PHFA did considerable outreach and marketing to both 

administrative drop in services. However, if the individual 

existing landlords and to developers to encourage 811 

needs to transfer to a new provider as a result of the 

PRA program participation. The housing component of 

move, any drop in service will be consistent with the time 

Pennsylvania’s 811 PRA program is currently composed 

it takes to select the new provider and establish the first 

of new development and rehabilitation. Although 

appointment. Continuity of Care agreements are in place 

PHFA intends to expand its outreach to existing units, 

between HealthChoices County or Behavioral Health 

initial y the National Environmental Policy Act’s rules 

Managed Care Organizations for Medicaid Managed 

created some confusion, so PHFA focused on new 

Care, and eligible individuals who are awaiting medical 

construction and rehabilitated units. In addition, most 

assistance enrol ment should require only county-funded 

of the one-bedroom units in existing properties that 

services for a short period of time. This coordination 

became available were in buildings that already met the 

helps to ensure individuals are transferred to a new 

25-percent limit on the percentage of supportive housing 

service provider in the county of the location where the 

units for people with disabilities, exempting them from 

individual is moving. 

program participation. Moving forward, PHFA estimates 

that people will be housed through new construction and 

Although Medicaid-funded services are distributed at the 

existing units and will focus on landlord recruitment to 

state-level with no geographic restrictions, many broad 

expand housing choices for program participants.

community-based services are funded through county 

Table 6.2 : Pennsylvania — Responsibilities of Local Lead Agencies and S t akeholder s

Local Lead Agencies

Stakeholders

•  Serving as Single Point of Contact for the 811 PRA program.

•  Conducting outreach to potential applicants.

•  Tracking the availability of 811 PRA program units. 

•  Prescreening potential tenants prior to referral.

• 

• 

Referring people with disabilities to the local lead agencies for the 811 PRA 

Conducting eligibility assessments using SocialServe. 

program.

•  Monitoring tenant selection.

•  Assisting referred applicants in securing the necessary paperwork.

•  Maintaining all referral and application information. 

•  Conducting a supportive services needs assessment.

•  Matching potential tenants to units, managing the referral process. 

•  Providing transition assistance and moving assistance.

• 

• 

Coordinating support services to tenants in the program by identifying 

Establishing a stakeholder group.

community-based services.

•  Promoting local government participation in the 811 PRA program.

•  Providing services to tenants once in housing.

•  Working with property manager on emergent issues.

•  Participating in meetings with the local lead agencies and other stakeholders.

PRA = Project Rental Assistance.

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

Property and Unit Characteristics 

2.  PHFA maintains close contact with the developer 

At the time of the site visit in October 2015, the one 

throughout the process. 

property under RAC at that time, Felton Lofts, was 

3.  PHFA ensures that the set-asides for people with 

financed with LIHTCs. Felton Lofts applied for and signed 

disabilities in the building have not already been met 

a RAC for two, two-bedroom units in Dauphin County. 

and then works with the local lead agency to approve 

Felton Lofts is a mixed-income property developed by 

the property. 

Pennrose Properties, LLC, a developer with whom PHFA 

4.  If the local lead agency does not believe the property 

has worked in the past on the Rental Subsidy Fund 

would be a good fit for the population, PHFA will not 

Program and numerous LIHTC projects. These units were 

move forward with the property. 

vacant at the time of the site visit.

Implementation Schedule 

Property Selection Methods and Financing

Pennsylvania’s 811 PRA program budget indicates that it 

Prior to engaging property developers, PHFA examined 

expects to support 200 units of affordable rental housing 

the inventory of properties and screened out all ineligible 

with 811 PRA subsidies over the grant period. Starting in 

properties, such as buildings for people aged 62 and older. 

2014, Pennsylvania’s annual goal was to place 50 units 

At that point, they screened for newer construction (2011 and 

under RAC each year for 4 years. At the end of 2015, 

newer) due to the environmental requirements of the grant. 

however, only two units were under a RAC and one unit 

PHFA held two regional meetings to explain and market 

was occupied. 

the program to property owners and landlords. In addition, 

PHFA issued press releases on the program and sent out 

Implementation has lagged due to a number of factors, 

mass emails to eligible property owners to get the word out.

including the loss of key Department of Human Services 

and PHFA staff during early program startup, the 

Original y, Pennsylvania’s 811 PRA program application 

geographic breadth of the program, identifying Dauphin 

stated that it intended to obtain units for its 811 PRA 

County as its pilot site where not many properties are 

program from units newly developed using LIHTC 

available, and delays around HUD’s approval of the 

al ocations from the 2011 to 2013 al ocation rounds. In other 

Cooperative Agreement, which was not sent by HUD 

words, a mix of both “existing,” already developed units, 

until October 30, 2014. Additional y, PHFA had difficulty 

and “new,” recently constructed units, would be utilized 

engaging interested developers and landlords to commit 

for the 811 PRA program. PHFA discovered that far fewer 

units to the 811 PRA program. However, PHFA and DHS 

developers were interested in participating in the program 

expect the Philadelphia metro area to implement the 

than PHFA had expected. In addition, during 2015, the 

811 PRA program next. Program implementation in the 

developers that were interested were only able to commit 

Philadelphia area will result in considerable progress 

to two-bedroom units due to a limited availability of one-

toward the program goals of placing 50 units under RAC 

bedroom units in the pilot area, Dauphin County. Because 

each year. Once the program is under way in Philadelphia, 

of this outcome, PHFA is now reaching out to all potential y 

two other pilot sites (to be determined) will begin as wel . 

eligible properties regardless of when LIHTCs were awarded 

PHFA and DHS expect that by 2017, most local lead 

in an effort to al ocate the 2012 811 PRA subsidy funds. In 

agencies will begin implementing the 811 PRA program.

addition, PHFA implemented preferences in its QAP for the 

most recent round of tax credit awards. Although PHFA is 

Rent and Subsidy Levels

not technical y awarding “points,” if two developers had 

Participants in the program will pay no more than 

applications that scored exactly the same and one had 

30 percent of their adjusted monthly income toward 

identified an interest in the 811 PRA program, that developer 

rent. Income will be recertified annual y. The two units 

would be given preference in receiving LIHTCs and would 

currently set aside by Pennrose for the 811 PRA program 

be required to provide units for 811 PRA program tenants.

will have rents affordable at 50 percent of the AMI as 

Dauphin County used the fol owing process to identify 

required in the cooperative agreement. The budget in 

an appropriate property for the 811 PRA program. This 

Pennsylvania’s cooperative agreement indicates an 

process will be replicated as the program is extended to 

anticipated average contract rent of $678 per unit per 

other areas in the Commonwealth.

month, with an average tenant payment of $300. The 

1.  When a developer expresses interest in the 811 PRA 

average 811 PRA program subsidy is anticipated to be 

program through conversations with PHFA, PHFA 

$378 per unit per month, as provided by the 811 PRA 

sends the developer an informational packet with al  

program budget for 200 units.

the necessary paperwork, including a RAC template. 

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Chapter 6. Pennsylvania Section 811 Project Rental Assistance Program

Unit and Tenant Turnover

Coordination of Services and Housing

Pennsylvania had not encountered any unit or tenant 

The local lead agencies serves as the coordinating 

turnover at the time of the site visit. However, PHFA, the 

entity in each implementation area. DHS supports 

local lead agencies, and the property owner believed 

local lead agencies and provides technical assistance 

that the process would work much like it does for the 

as necessary, but the coordination piece occurs at 

Rental Subsidy Fund program. Once a tenant leaves 

the county level. The local lead agencies engages 

the unit, the property manager wil  notify the local lead 

and recruits service providers, bringing them into 

agencies to alert the agency of the vacancy. At that 

the stakeholder group, and signing memorandum of 

point, the local lead agencies wil  begin the placement 

understandings with each. The local lead agency’s 

process with the next eligible person at the top of the 

responsibilities between the time that a referral is made 

waiting list, contacting the referral agency and potential 

and an individual is housed include—

tenant to have them visit the unit and begin the property 

•  Regularly notifying agencies of unit availability based 

application process.

on regular contact with property managers.

PHFA reported that it does intend to make vacancy 

•  Ensuring the community-based service provider helps 

payments to property owners when a resident moves 

the prospective tenant visit an available unit.

out. The owner is eligible for 80 percent of the contract 

rent for up to 60 days after the unit is ready for 

•  Working with the primary service provider to help 

occupancy. Property owners have 180 days to submit a 

potential tenants gather paperwork and apply for the 

special claim request, and on approval or adjustment of 

unit.

the request, PHFA will notify the owner in writing. 

•  Working with the primary service provider if issues 

related to tenancy arise.

Service Provision and Coordination

•  Serving as the tenant services liaison to property 

Service Models

owners and managers.

DHS will work directly with local lead agencies to 

•  Tracking referrals, move-ins, and changes of service 

individualize supportive services to people referred to 

providers, and reporting performance to DHS.

the program. Each service provider that refers people 

Service Provision (Types, Transition Versus 

to the program will identify the service planning needs, 

Ongoing, by Target Population, Gaps)

housing needs, and supports necessary for the referred 

candidate for housing. Services can then be tailored to 

The types of services available to 811 PRA program 

the needs of the individual. 

tenants vary by both their specific needs and their desire 

for services. At the point of tenancy, all services become 

Stakeholders or service providers in the community 

voluntary. The service provider attached to the potential 

serving participants are already providing services to the 

tenant at the time of referral is responsible for the 

individual. The services provided to program participants 

transition services. If services are funded through MFP, 

are largely individualized based on their needs and 

potential tenants receive 180 days of transition services. 

referral source. All participants are eligible to apply 

for Medicaid. When individuals indicate they want to 

Services provided to people through the ODP are 

participate in the 811 PRA program, and it is determined 

provided by “support coordinators” who help provide 

they are not enrol ed in Medicaid, the referral entity 

support services, identify funds to help with unit startup 

immediately assists them with the application to enrol  

costs (such as linens, pots, pans and other necessities), 

in Medicaid. All agencies provide intensive services to 

home modifications if necessary, and furniture. For 

potential participants during the outreach, application, 

individuals receiving services through the OLTL and the 

and referral processes. 

Office of OMHSAS, those services are similarly available. 

A service coordinator provides services, and an OLTL 

Participants are also provided housing transition 

$4,000 lifetime cap is on the amount an individual can 

assistance by their case manager or the service 

receive through the Community Transition Funds. 

coordinator from their referring agency. However, once 

participants are housed, services are voluntary. Tenants 

NHT coordinators also provide transition services to 

are not required to participate in any services to continue 

people exiting nursing home facilities. Like support 

receiving housing assistance. 

coordinators and service coordinators, NHT coordinators 

will tailor transition services to individual needs. Through 

the independent enrol ment broker, consumers can 

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choose an ongoing service provider (service coordination 

DHS are attuned to each part of program administration 

agency). The NHT coordinators will fol ow up with noncare 

and work together to deal with any issues that may arise. 

managed individuals for 1 year fol owing transition.

PHFA Program Monitoring

Most tenants will be able to continue with their existing 

primary service provider for ongoing support services. 

PHFA is the Performance Based Contract Administration 

Individual service plans are created for the tenant at the time 

for the state and administers contracts in Pennsylvania 

of discharge and assess each person’s individual needs. 

that cover more than 45,000 units of housing. PHFA also 

Service needs are reassessed annual y by the tenants’ 

administers various other programs that provide rental 

service provider to identify any changes or additional needs.

assistance for lower-income renters with disabilities as 

described in the section titled Service Provision and 

2013 811 PRA Application

Healthcare. As a result of its administration of other 

affordable rental programs, PHFA already has a financial 

In the 2012 and the 2013–2014 811 PRA program 

management system in place that is used across al  

application rounds, HUD awarded Pennsylvania funding to 

programs and will be used for 811 PRA program grant 

provide subsidy for 200 units in each round, for 400 units. 

management. 

Funding per application varied substantial y. $5,870,880 

was awarded for the 2012 program and $8,557,014 was 

In addition to managing grant status, PHFA developed 

awarded for the 2013–2014 program. The higher funding 

quality control mechanisms that will ensure accurate and 

amount can partial y be attributed to the grantee’s 

timely fund disbursement to 811 PRA program property 

anticipation of rent increases and market changes. No 

owners. These mechanisms include verifying the accuracy 

major policy shifts were in the 2013–2014 application, 

of monthly vouchers, rent adjustments, and mechanisms 

and Pennsylvania indicated that it intended to continue 

around tenant health, safety, and housing maintenance. 

its statewide program for the same target population as it 

PHFA will also submit monthly tenant certifications to the 

established in its 2012 811 PRA program application.

Tenant Rental Assistance Certification System. To monitor 

and implement annual increases in rent (and utilities where 

Leveraging

appropriate), PHFA will use the Integrated Real Estate 

Management System to record and track annual increases.

PHFA worked with public housing authorities to provide a 

In addition to HUD systems, PHFA has multiple inhouse 

leverage commitment of 151 housing choice vouchers for 

tracking systems for its programs. Systems track tenant 

nonelderly people with disabilities. Prior to application, 

characteristics of each program, with built-in systems 

most or all Pennsylvania’s public housing authorities 

to check income and make sure tenant income meets 

were in full support of the 811 PRA program application 

the restrictions. In addition, PHFA and DHS developed a 

for funding, and several committed resources to support 

series of performance measurements that they will use 

the effort. In total, six Public Housing Agencies (PHAs) 

to monitor program implementation. These performance 

committed 151 HCVs or public housing units to the effort. 

measurements include— 

At the time of the October 2015 site visit, none of the 

•  Rate at which 811 PRA program units are occupied.

HCVs had been utilized. During a startup meeting 

with Philadelphia, the housing authority committed 50 

•  Percent of units occupied with eligible tenants.

vouchers, but had not initial y targeted Olmstead-related 

•  Percent of rental payments made on time.

populations. PHFA was working through the issues, 

•  Percent of referrals made by local lead agencies to 

ensuring that Priority 1 populations (those transitioning 

property owners.

from nursing homes) were being targeted and that the 

public housing agency had formal processes in place to 

•  Percent of tenants who retain units for 1 or more years.

track the vouchers.

•  Satisfaction of 811 PRA program tenants.

Program Administration, 

•  Satisfaction of property owners.

Assessment, Information Systems, 

PHFA also oversees housing construction. A dedicated 

full-time staff person conducts the environmental reviews 

and Data Infrastructure

for all the projects during construction, after construction, 

PHFA and DHS work cooperatively to oversee program 

and after occupancy to ensure that the property meets 

implementation, and to make sure program components 

housing quality standards, accessibility standards, and 

are administered as designed. Meeting weekly, PHFA and 

environmental standards. The staff person wil  also be 

assigned to oversee 811 PRA program development. 

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DHS Program Monitoring

Challenges

Statewide DHS is implementing SocialServe, a web-based 

tool that service providers will use to log the service needs 

Securing One-Bedroom Units 

of individuals and submit referrals. The system is not yet 

Thus far, Pennsylvania’s primary chal enge has been 

implemented, so for the pilot local lead agencies, Dauphin 

securing the right type of housing units for the program 

County, referrals are done through completing a form and 

in Dauphin County. In the one RAC signed thus far, two-

submitting it by email to the local lead agencies. The data 

bedroom units were available but no one-bedroom units 

col ected are kept in a spreadsheet.

were identified for the program. PHFA, which has done 

considerable outreach to developers, is concerned about 

Successes 

the lack of existing landlords agreeing to participate and 

new developers having no one-bedroom units available 

Strong Partnerships

in properties that did not already meet the maximum 

DHS, PHFA, and the stakeholders interviewed in Dauphin 

threshold of 25 percent.

County all pointed to the strength in the partnerships as 

Staff Turnover

the biggest program success to date. DHS and PHFA 

built on an existing partnership, strengthening it through 

Another chal enge faced by both PHFA and DHS was 

shared responsibility and trust. Meeting weekly and 

staff turnover. Key staff members involved in writing the 

keeping each other informed of progress has proven 

grant application were no longer with the departments. 

beneficial for this program and others they administer 

Although this turnover resulted in some loss of 

together. Pennsylvania is also proud of its networks of 

institutional knowledge and initial groundwork, both 

local lead agencies that perform outreach and referrals 

departments filled those vacancies quickly with qualified 

for 811 PRA program housing and services. However, the 

staff.

program was still in the implementation process at the 

pilot site during the time of the site visit, so not a lot of 

Breadth of Geographic Differences

evaluative information was available.

Moving forward, the program’s geographic reach may 

Dauphin County, the pilot site, similarly believed that 

be a chal enge. Both DHS and PHFA are confident 

the partnerships between the stakeholders have been 

that the program will be implemented well across 

the biggest success so far. The local lead agencies 

the Commonwealth, but they also recognize that the 

stakeholder team for the program is composed of people 

decentralized approach to implementation will be 

with substantial experience and knowledge. Meeting 

a considerable undertaking given the difficulties of 

frequently has helped the program, but it has also helped 

coordination. Furthermore, it is not clear whether or not 

better serve the community. Stakeholders were forced to 

Pennsylvania can match the right number of people to 

think outside their own service systems and look at the 

the number of units, particularly in the rural counties.

community needs holistical y. The Dauphin County local 

Shift in Housing Strategy

lead agencies also believes it was critical to have the 

right stakeholders involved. 

As discussed previously, Pennsylvania had to pivot 

from its plan of focusing on existing properties. With 

Leveraging Existing Programs

a 25-percent limit on the percentage of supportive 

DHS’s existing Regional Housing Coordinator initiative 

housing units for people with disabilities, many existing 

and Nursing Home Transition program are key to 

properties could not participate in the 811 PRA. 

Pennsylvania being able to quickly serve the target 

Coupled with confusion over the environmental review 

population. These two programs are already familiar with 

rules, Pennsylvania had to increase its focus on new 

the target population’s needs and the available housing 

construction and rehabilitated properties. 

transition services. This familiarity eliminates a need for 

training and reduces the learning curve for implementing 

811 PRA services.

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Chapter 7. Washington Section 811 Project Rental Assistance Program 

Washington Section 

significant demand for rental subsidies for the 811 PRA 

target population. The 811 PRA program provided an 

811 Project Rental 

opportunity to increase rental subsidies for people with 

disabilities and increase the availability of dedicated 

housing inventory for this population. DSHS also had 

Assistance Program 

already developed outreach and referral mechanisms for 

transitioning people out of institutional care and could 

utilize those same procedures for the 811 PRA program. 

Commerce submitted its 811 PRA application in August 

2012 and HUD awarded 811 PRA funds in February 2013. 

Introduction

HUD signed the Cooperative Agreement with Commerce 

on October 30, 2014. 

HUD awarded the Washington Department of Commerce 

Partnerships and Organizational Structure

(Commerce) $5,739,717 in Section 811 Project Rental 

Assistance program funding in the 2012 funding round. 

The Washington Department of Commerce operates more 

Commerce partnered with the Washington State 

than 100 programs for businesses, local governments, 

Department of Social and Health Services (DSHS) to apply 

and communities and makes both direct and indirect 

for the 811 PRA funding and implement the demonstration. 

funding available for more than 6,000 grants, loans, or 

The 811 PRA funding is estimated to provide rental 

contracts a year. Commerce also oversees the state’s HTF 

subsidies for up to 215 units. The target populations 

for the development of affordable multifamily housing and 

served by the 811 PRA program are extremely low-

administers several federal and state programs for people 

income, nonelderly adults with developmental disabilities, 

who are homeless or at risk of homelessness. 

functional disabilities, or mental il ness, or are individuals 

Commerce operates the 811 PRA program in its Housing 

participating in the Roads to Community Living (RCL) 

Assistance unit within the Community Services and 

program, which serves individuals who have complex, 

Housing Division. Commerce’s 811 PRA program 

long-term care needs and want to move from institutional 

responsibilities include marketing the program to 

settings to a community living setting. 

owners of state-financed properties, reviewing owner 

Evaluators conducted a site visit in November 2015 to 

applications for 811 PRA funding, and executing the 

learn how the two agencies and their partners were 

RAC with owners. Commerce staff also monitor ongoing 

implementing the 811 PRA program. At the time of the 

owner compliance. As the grantee, Commerce monitors 

visit, Commerce had executed RACs for 26 units at 

the performance of DSHS and its partners and submits 

four different developments throughout the state. Nine 

quarterly reports to HUD. 

residents were living in 811 PRA-funded units. The 

Commerce administers the 811 PRA program in 

evaluators also visited Channel Cove in La Conner, the first 

partnership with the DSHS, the state human services 

property in Washington to receive the 811 PRA subsidy 

agency. DSHS provides long-term care services for 

and the home of two 811 PRA participants at the time of 

persons with disabilities through its Aging and Long-

the visit. At the end of 2015, 32 units were under RAC, and 

Term Support Administration (ALTSA). ALTSA, through 

11 units were occupied.

its Home and Community Services Division, administers 

Grantee Partnerships 

the RCL program, the state’s Money Fol ows the Person 

Rebalancing Demonstration program for persons with 

Organizational Structure, and 

disabilities exiting from institutions. Those targeted to 

Management

receive 811 PRA subsidies are DSHS clients enrol ed in the 

RCL program, consumers served by other programs in the 

Application Background 

Home and Community Services Division, and individuals 

served by the Developmental Disabilities and Behavioral 

Commerce and DSHS applied for 811 PRA funding to 

Health and Recovery divisions. 

increase the inventory of affordable housing for low-

DSHS, through contracted service providers, conducts 

income residents, specifically for people with disabilities. 

outreach to and screening of potential applicants for the 

DSHS had previous experience coordinating housing 

811 PRA program, referring eligible applicants to available 

resources with local public housing authorities for federal y 

units and overseeing contracted service providers to 

funded vouchers for nonelderly people with disabilities. 

ensure residents have ongoing connection to the services 

The high utilization of these vouchers demonstrated the 

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Chapter 7. Washington Section 811 Project Rental Assistance Program 

they need. Service provider case managers identify and 

Washington State Health Care Authority is the state 

screen their clients who are living in institutional settings 

Medicaid Agency and coordinates with DSHS to provide 

or other residential settings who are eligible for the 811 

Medicaid services. WSHFC and Health Care Authority 

PRA program. RCL housing program managers coordinate 

signed as parties to the 2012 application but do not play 

housing referrals within the three regions of the state and 

active roles in 811 PRA program administration. 

market the 811 PRA program to owners and properties in 

Table 7.1 summarizes the agencies’ respective roles in the 

their regions.

811 PRA program. The agency roles are the same as those 

The Bremerton Housing Authority, through its Contract 

proposed in the 2012 funding application.

Management Services Division, is the PBCA for 

Commerce and the 811 PRA program. As a PBCA, the 

Program Financial Structure 

authority obtains tenant data from owners, reviews and 

The 811 PRA program is supported through the 

enters the data in HUD’s tenant data reporting system, 

Section 811 administrative grant fees and from in-kind 

TRACS, and submits the vouchers to HUD for payment. 

contributions of staff time. Administrative funding from the 

Bremerton Housing Authority acted as a PBCA since 2000 

811 PRA award is 8 percent of the awarded rental subsidy 

and administers more than 9,000 PBCA contracts in four 

amount, or $425,165. An administrative fee is passed 

states—Hawai , Nebraska, Utah, and Washington.

through to the Bremerton Housing Authority to pay for 

Two other state agencies play indirect roles in the 811 

voucher processing. All 811 PRA functions at Commerce 

PRA program. The Washington State Housing Finance 

and DSHS have been absorbed by existing staff and 

Commission (WSHFC) is the state’s housing finance 

funded through other programs. Within Commerce, the 

agency. WSHFC allocates federal Low-Income Housing 

direct and indirect costs for staff and tasks related to the 

Tax Credits and tax-exempt bonds for the development 

811 PRA program are absorbed by Commerce. DSHS 

of affordable, multifamily housing. Properties funded by 

staff positions for the 811 PRA program are paid through 

WSHFC are eligible to apply for 811 PRA units. WSHFC 

the MFP Demonstration project administrative funds, 

asset management staff monitor tax credit properties, 

which are funded through 2020. 

including those that have 811 PRA-funded units. The 

Table 7.1: Washington S t ate — Agency Roles in the 811 P R A Program

Washington State Department  

Department of Social and  

Washington State Housing  

of Commerce

Health Services

Finance Commission

Bremerton Housing Authority

•  State grantee or state housing 

•  State health and human services 

• 

• 

Performance-Based Contract 

State housing finance agency

authority.

agency.

Administrator.

•  Issue Low-Income Housing Tax 

•  Perform 811 PRA program planning. •  Perform 811 PRA program planning.

Credit (dedicated financing source 

•  Obtain tenant data from owners.

for 811 PRA units).

• 

• 

• 

Inspect and monitor 811 PRA 

Submit vouchers to HUD for 

Market 811 PRA to owners.

•  Market 811 PRA to owners.

properties.

payment.

•  Review owner applications.

•  Review owner applications.

•  Administer Rental Assistance 

•  Coordinate 811 PRA referrals.

Contract and subsidy payments.

• 

• 

Oversee coordination of services by 

Produce HUD quarterly reporting.

contracted service providers.

•  Provide Owner Notice of Funding 

•  Produce HUD quarterly reporting. 

Availability development.

• 

• 

Washington State Health Care 

Review owner applications.

Authority

•  Inspect and monitor 811 PRA 

•  State Medicaid agency.

properties.

PRA = Project Rental Assistance.

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In the 2012 funding application, Commerce estimated a 

income is Social Security Disability Insurance to spend 

total staff burden of about a third of one ful -time equivalent 

104 percent of their income to rent a one-bedroom unit 

(0.35 FTE) for administering the 811 PRA program, 

(Social Security Administration, 2014b). The amount of 

including the 811 PRA program manager (0.15 FTE), Policy 

Supplemental Security Income benefits in Washington 

and Data Analyst (0.10 FTE), and Contracts Specialist (0.10 

State varies by location but does not exceed the poverty 

FTE). Commerce staff report that they spent considerably 

level income for the state. 

more time on implementing the 811 PRA program in the 

State agencies are committed to securing housing 

first year than they initial y had expected; a significant 

resources for people with disabilities in Washington. 

portion of that time was spent marketing the program 

Commerce manages five major housing programs 

to potential owners. Although the time estimate for the 

that provide permanent supportive housing for people 

Policy and Data Analyst and Contracts Specialist has been 

with disabilities, including programs that finance the 

relatively accurate, the 811 PRA program manager has 

development of affordable housing and programs that 

routinely spent about two-thirds of her or his time on the 

provide rental subsidies for low-income households. 

811 PRA program to date, more than four times as much 

WSHFC also finances development of affordable 

time as planned. In addition, a supporting staff member in 

multifamily housing with incentives to develop supportive 

the Housing Assistance unit has also spent about .65 FTE 

housing units and for serving people with disabilities. Since 

on the program. Overal , Commerce staff time spent on the 

2007, DSHS has provided tenant support services for its 

program thus far has exceeded the proposed staffing plan 

Medicaid consumers through the MFP program. Many 

by more than one FTE. 

other low-income individuals with disabilities receive rental 

DSHS committed one-third of the time of each of its three 

subsidies through federal y funded programs administered 

regional Housing Program Managers for a total of one 

by local housing authorities. 

ful -time staff position dedicated to the 811 PRA program. 

In addition to the three regional managers, DSHS expected 

Existing Housing Programs That Serve 

that the RCL project director would spend a nominal 

People With Disabilities

amount of time overseeing the overall 811 PRA program 

The 2015 Housing Needs Assessment report estimated 

implementation and coordination of program referrals and 

that, as of December 2013, more than 118,000 hard units of 

services. Although DSHS did not commit any substantial 

subsidized rental housing that had been built using federal, 

time of the RCL project director in the funding application, 

state, and local funds, and 40,000 households accessing 

this staff person has spent about one-third of staff time 

affordable housing through tenant-based rental subsidies 

administering the 811 PRA program to date. 

(AHAB, 2015). The fol owing are descriptions of the major 

housing programs that are administered in Washington 

State Context: Housing Programs

that support people with disabilities of all ages. 

Housing Programs and Funding

Commerce Housing Programs. Commerce operates 

several housing programs that serve people with 

The State of Washington has a significant need for 

disabilities. These programs include both financing for 

affordable and suitable housing for people with disabilities. 

multifamily rental housing and rental assistance funding for 

The state’s Affordable Housing Advisory Board issued 

low-income households. 

a Housing Needs Assessment Report in 2015, which 

estimated that 36 percent (936,000 households) are 

Commerce administers one program that provides housing 

cost-burdened and pay more than 30 percent of their 

targeted specifical y to people with disabilities of all ages. 

income toward rent. The report also noted that more than 

The Washington State Housing Trust Fund finances 

390,000 households are severely cost-burdened and pay 

affordable housing projects for households earning up 

more than 50 percent of their income toward rent (AHAB, 

to 80 percent of Area Median Income, but mostly serves 

2015). Low-income people with disabilities may have an 

households earning up to 30 percent of AMI. Since 

especial y difficult time obtaining affordable housing. 

1987, HTF has awarded nearly $1 bil ion in funding that 

The 2013 American Community Survey estimated that 

has helped create 40,000 affordable housing units. The 

about 12 percent of the state population, or more than 

application for HTF funding is competitive, and most units 

400,000 people, have a disability (Census Bureau, 2013). 

are set aside to serve specific special-needs populations, 

In 2014, nearly 100,000 people were receiving Social 

including people with disabilities. However, other special 

Security payments for disability in Washington State. The 

populations are served, such as homeless families and 

average Social Security Disability Insurance payment 

youth, farmworkers, people with chronic mental il ness, 

in Washington was $767, requiring those whose sole 

and veterans. Al ocations for special populations are set by 

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the legislature and vary by year. In 2015, the HTF awarded 

The state’s QAP lays out the criteria for competitive tax 

$47 mil ion toward the development of 1,369 housing units. 

credits. Between 10 and 35 priority points are awarded for 

Of these units, 176 are specifical y set aside for persons 

serving various special populations, including people with 

with disabilities.

disabilities, elderly people, homeless families, and large 

In addition to unit set-asides in the HTF, Commerce also 

households. Properties that provide at least 20 percent 

operates programs targeted to people who are homeless 

of the total units as housing for persons with disabilities 

or at risk for homelessness that includes people with 

receive 10 points. Properties that set aside at least 75 

disabilities. 

percent of the total housing units for supportive housing 

units for people who are homeless receive the maximum 

•  The HOME Tenant-Based Rental Assistance programs 

35 points. Projects receiving tax credits typical y receive 

provide homeless and low-income households with 

points for serving more than one special population. (For 

security and utility deposits and rent assistance for up 

example, properties for seniors typical y also receive 

to 24 months. The TBRA programs serve approximately 

points for serving people with disabilities). WSHFC did not 

620 households annual y in 25 counties.

consider adding priority points specifical y for the 811 PRA 

•  Commerce al ocates federal Continuum of Care 

program because priority points are already established 

grant funds to 33 counties. With annual funding of 

for serving people with disabilities within the special 

approximately $5 mil ion, Continuum of Care funding 

population’s set-aside. 

has financed more than 20 permanent, supportive 

Aging and Long-Term Support Administration housing 

housing projects and provided 536 beds (units) for 

programs. The ALTSA administers long-term services for 

homeless persons with disabilities. 

more than 60,000 seniors and persons with disabilities. 

•  Commerce administers $2.5 mil ion annual y in Federal 

ALTSA administers the federal y funded MFP program, 

Emergency Solutions Grant funds that provide funding to 

RCL and Washington Roads, a state-funded supplemental 

counties for a variety of services to prevent homelessness 

program, within the Home and Community Services 

or rapidly rehousing persons who are homeless. 

Division. The RCL program provides services and supports 

for individuals interested in moving from institutional 

•  Through its state Homeless Assistance Programs, 

settings, such as from skil ed nursing facilities to 

Commerce has created 2,074 PSH beds.

community settings. To be eligible for services, individuals 

•  The Consolidated Homeless Grant is a state-

must have resided in institutional care for at least 90 days. 

funded program which helps fund approximately 

Participants receive assistance locating and transitioning 

300 emergency shelter, transitional housing, rapid 

to new housing, along with case management services 

rehousing, and PSH programs throughout the state.

and other services for a year after moving. 

Although these homeless programs are not targeted 

The MFP program also provides funding to states for 

specifical y to people with disabilities, the programs serve 

their LTSS systems by devoting a greater proportion of 

many of those in the 811 PRA target population. Another 

Medicaid spending to home- and community-based 

federal program that Commerce administers, which serves 

services instead of institutional care. DSHS uses its MFP 

people with disabilities, is the Housing Opportunities 

rebalancing funds to create a temporary rental subsidy 

for People With AIDS Program. The program serves 

program for people transitioning from institutional care. 

approximately 200 households annual y with HIV/AIDS, 

The housing Bridges program provides up to 24 months 

including 87 with tenant-based rental assistance. 

of rental subsidy. Participants must apply for affordable 

Low-Income Housing Tax Credits. The WSHFC awards 9 

housing and reasonably expect to be housed within 2 

percent competitive and 4 percent noncompetitive federal 

years. Bridges program subsidies are also available to 

LIHTC. WSHFC also administers the Multifamily Housing 

individuals who do not qualify for MFP. As of late 2015, 

Bonds Program that provides developers access to bond 

26 individuals were utilizing Bridge subsidies. Through 

financing for affordable housing for people typical y earning 

2018, the program is 100 percent state funded through 

50 to 60 percent of AMI. Currently, more than 57,000 units 

rebalancing funds.

exist throughout the state that were developed using 

DSHS coordinated with five public housing authorities 

federal tax credits. Between 2011 and 2015, the WSHFC 

to apply for and administer 215 NED Category 2 HCVs 

awarded nearly $900 mil ion in LIHTCs for 88 projects 

beginning in 2011. NED Category 2 is a joint effort 

totaling 5,390 housing units. Of awards made between 

between HUD and Centers for Medicare and Medicaid 

2011 and 2015, 12 percent (655 units) of the units were set 

Services and provides rental subsidies for housing for 

aside specifically for persons with disabilities. 

low-income, nonelderly people with disabilities residing 

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Chapter 7. Washington Section 811 Project Rental Assistance Program 

in institutional care settings. DSHS was responsible 

rental subsidy resource in the state specifical y set aside 

for helping residents transition out of institutions and 

for this population. Although NED Category 2 vouchers 

coordinating necessary service supports. All NED 

are specifical y set aside for nonelderly people with 

Category 2 vouchers were leased within 18 months and 

disabilities, only people transitioning from institutional 

have served nearly 400 households in the subsequent 4 

care are eligible, whereas the 811 PRA units target a 

years. Approximately 70 percent of households under the 

broader range of people with disabilities living in other 

program are stil  being housed using their original voucher. 

residential settings and who are homeless. 

In addition to NED Category 2 vouchers administered 

811 PRA subsidies support one additional permanent 

in conjunction with DSHS, public housing authorities 

housing resource that DSHS case managers can use to 

administer 4,603 Category 1 NED Vouchers throughout 

help their nonelderly clients locate affordable housing 

the state. Category 1 NED Vouchers are available to 

in the community and prevent them from unnecessarily 

al  eligible low-income, nonelderly households with a 

living in institutional care. HOME TBRA and Bridge funds 

person with a disability, regardless of whether they move 

can only be used for up to 2 years, although 811 PRA 

from institutional settings. 

subsidies will be available for 5 to 20 years. Most PSH 

developed under the LIHTC program is specifical y for 

Additional Federal Housing Programs 

formerly homeless people, which may include people 

In addition to state agencies, local governments, 

with disabilities, but are not specifical y set aside for 

housing authorities, and private owners develop and 

that population. In addition, supportive housing priority 

administer affordable housing in Washington for people 

points are awarded only when owners set aside at least 

with disabilities. Table 7.2 provides an overview of the 

75 percent of units in a property for supportive housing, 

number of persons served by six major federal y funded 

exceeding the 811 PRA program regulation that limits 

housing programs. As shown, about one-half of public 

the number of supportive housing units for people with 

housing households and HCV recipients are headed by a 

disabilities to 25 percent for one property. 

nonelderly person with a disability.

Rental Housing Market

How the 811 PRA Program Fits With Other 

The rental housing market in Washington varies by 

State Housing Programs

region, with the most expensive and tightest market in 

The 811 PRA program fil s a need for rental subsidies 

and near the Seattle metropolitan area. Table 7.3 shows 

specifically for nonelderly people with disabilities. Several 

characteristics of the rental market in three areas where 

housing programs in Washington—including public 

811 PRA units are under contract. Median Family Income 

housing, HCVs, and other state and federal housing 

and Fair Market Rents vary throughout the state but is 

programs—serve people with disabilities, but Non-

highest on the coast. The rental vacancy rate varies by 

Elderly Disabled Vouchers are the only other existing 

region but is 3.9 percent for the state overall for the fourth 

quarter of 2015.

Table 7.2 : Washington S t ate — Over view of Major Federal Housing Programs

Percent With 

Disabilities Among 

Number of Household 

Percent Extremely 

Head, Spouse  

Percent of All Persons 

Program

Units Available

Members

Low-Income

Aged <62 

With Disability

Public Housing

12,292

23,849

79

49

28

Housing Choice Voucher

56,136

123,687

79

49

29

Moderate Rehabilitation

998

1,212

92

66

49

Project-Based Section 8

15,305

22,098

80

51

25

202/PRAC

2,540

2,821

79

– 1

16

811/PRAC

603

624

87

100

89

PRAC = Project Rental Assistance Contract. 

Source: HUD (2016)

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Table 7.3 : Washington S t ate — Rent al Housing Market s

Percent of MFI Needed To 

Geographic Area

Population

MFI

One-Bedroom FMR

Afford One-Bedroom FMR

Seattle Urbanized Area

3,075,787

$88,000

$912

59.2

Olympia-Lacey Area

177,704

$75,000

$703

54.6

Skagit County

117,087

$65,900

$742

64.3

FMR = Fair Market Rent. MFI = Median Family Income. 

Source: Affordable Housing Advisory Board (2015)

Service Provision and Healthcare

Trends in funding for institutional care and home- and 

community- based services reflect DSHS’s goals away 

Current Status of Service and Healthcare 

from unnecessary institutional care. Between 1992 and 

Programs That Support Community Living

2015, the percentage of long-term ALTSA clients served 

in home- and community-based settings increased from 

DSHS administers waiver programs that provide HCBS. 

53 to 84 percent. DSHS has placed a heavy focus on 

HCBS waivers and State Plan Programs support 

transitioning individuals with disabilities out of institutions 

participants in their home or community-based setting 

and into community-based housing settings since the early 

as an alternative to care in a nursing facility or institution. 

1990s. At the same time, the percentage of clients living 

Each of the waivers provides an array of services tailored 

in nursing homes decreased from 47 to 16 percent. Since 

to the specific populations they serve.

2007, DSHS has helped transition more than 6,000 people 

ALTSA administers two HCBS waivers for people 

from institutional settings to residential settings in the 

with functional disabilities—the Community Options 

community through the RCL program. 

Program Entry System, or COPES, waiver and the 

Changes to Medicaid eligibility criteria.  Washington 

New Freedom Waiver. The Developmental Disabilities 

expanded Medicaid eligibility criteria under the Affordable 

Administration within DSHS offers five HCBS waivers 

Care Act. As of November 2015, nearly 1.8 mil ion state 

for people with developmental disabilities—Basic Plus 

residents were enrol ed in Medicaid, including about 

Waiver, Children’s Intensive In-home Behavioral Supports 

150,000 people with disabilities. 

Waiver, Community Protection Waiver, Core Waiver, and 

the Individual and Family Services Waiver. DSHS also 

Washington’s Olmstead Plan

administers State Plan Programs that support community 

living, including Community First Choice, Program of Al -

When the Supreme Court ruled on  Olmstead  v.  L.C. 

Inclusive Care of the Elderly, and Private Duty Nursing. 

in 1999, DSHS was already well into the process of 

transitioning individuals with disabilities out of institutions 

Changes in Medicaid resources away from 

into community-based residential settings. As such, the 

institutional settings and toward community living.  

Olmstead decision was not a major driver in state plans to 

Between 2008 and 2014, total Medicaid spending in 

serve people with disabilities. No lawsuits have been related 

Washington State increased from $6.3 bil ion to $10.4 

to the Olmstead decision in Washington. The state created 

bil ion, a 63.4-percent increase. Funding for long-term 

its Olmstead plan voluntarily in 2005 and does not have any 

services and supports went from $2.2 bil ion in 2008 to 

plans to update it. The plan is general in nature and does not 

nearly $2.5 bil ion in 2013 (Eiken et al., 2015; KFF, 2017). 

include any numerical goals related to the development of 

HCBS as a portion of LTSS also increased during this 

affordable housing for people with disabilities. 

period, indicating the continuing trend of decreased 

funding for institutionalized care and increased funding 

Local Issues: Homelessness

for community-based services and supports. HCBS 

Homelessness is a significant issue in Washington State. 

funding increased from 59.7 percent of LTSS in 2008 to 

The 2014 homeless annual point-in-time count identified 

64.4 percent in 2013, which is significantly more than the 

18,839 people who are homeless, including 6,289 

national average of 51.3 percent (Eiken et al., 2015). In 

unsheltered. As previously noted, Commerce administers 

fact, Washington ranks the sixth highest in the nation for 

state and federal programs that serve people who are 

its percentage of Medicaid funds spent on HCBS (Eiken 

homeless or at risk for homelessness, and WSHFC’s 

et al., 2015).

LIHTC program awards the most special population priority 

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Chapter 7. Washington Section 811 Project Rental Assistance Program 

points to properties serving homeless families. In the past 

Outreach, Referral, and Application

10 years, the state has placed a considerable focus on 

reducing the number of homeless people in Washington. 

This section focuses on the outreach and referral methods 

The state legislature passed The Homelessness Housing 

for individuals served through the HCS Division who are 

and Assistance Act in 2005 to require counties and state 

expected to make up most of 811 PRA applicants. 

agencies to undertake efforts to address homelessness. 

Participant Outreach and Referral Process

The state’s Interagency Council on Homelessness and 

Affordable Housing Advisory Board developed a 10-year 

For participants in the RCL program, 811 PRA units are 

plan to reduce homelessness by 50 percent by 2015. 

one option for low-income Medicaid consumers seeking 

Although the 50 percent goal was not met, the results of 

alternatives to institutional care. Transition coordinators, 

local, state, and federal investments have resulted in a 

case managers, and nurses who work with HCBS 

14-percent decline in homelessness since 2006. 

Medicaid waiver consumers identify individuals among 

their caseloads who are interested in applying for 811 

Population Served

PRA units. Individuals could reside in a variety of settings, 

including nursing facilities, assisted living centers, group 

To be eligible for the 811 PRA program, applicants must be 

homes, or in their own family homes. 

persons with disabilities, between the ages of 18 and 61 at 

move in, have incomes at or below 30 percent of AMI, and 

Other potential 811 PRA participants include other 

receive or be eligible to receive Medicaid services through 

consumers in the HCS Division and individuals (served by 

ALTSA. Beyond these general program requirements, 

the Developmental Disabilities Division and the Division 

individuals eligible for 811 PRA units include the fol owing 

of Behavioral Health and Recovery) who learn about the 

subpopulations of ALTSA consumers.

availability of 811 PRA funds through their case manager. 

All recipients of HCBS waiver services are assigned a 

•  Individuals served through the RCL program.

case manager. Case managers work with consumers at 

•  Individuals with developmental disabilities served 

nursing facilities to actively work with participants toward 

through the Developmental Disabilities Division.

discharge. They also work with individuals in their own 

•  Individuals with functional disabilities served through 

homes or other residential settings to support staying in 

the Home and Community Service (HCS) Division.15 

their current home. Case managers identify eligible 811 

PRA participants within their caseload and screen them for 

•  Individuals with mental il nesses served through the 

initial eligibility for the 811 PRA program. 

Division of Behavioral Health and Recovery (DBHR). A 

person whose sole impairment is alcoholism or drug 

Participant Screening and Eligibility

addiction is not eligible for 811 PRA units. 

Case managers use an online assessment tool to 

The state tries to target 811 PRA units to areas that most 

determine clients’ service needs as they transition to 

need affordable housing for persons with disabilities. 

and live in 811 PRA-funded housing. The transition 

Applicants can apply statewide as long as they meet 

assessment is part of a single comprehensive 

eligibility criteria. ALTSA and Commerce have not made 

assessment tool that DSHS uses for determining eligibility 

any changes to the 811 PRA program’s target population 

and service needs for many of their consumers, including 

as described in their funding application. 

those served by HCBS waivers. The tool, Comprehensive 

Through December 2015, 27 individuals had been referred 

Assessment Reporting Evaluation, or CARE, assesses 

to the 811 PRA program and 14 individuals had been 

individuals in a number of areas, including activities 

referred to available 811 PRA units. At the end of the year, 

of daily living, treatments and medication, cognitive 

11 households were living in units with 811 PRA rental 

capacity, and family supports. The tool determines 

subsidies. Of these households, 10 included individuals 

service needs and waiver eligibility. The CARE database 

had physical disabilities and were referred to the program 

is used for persons with functional disabilities and 

through ALTSA. 

with developmental disabilities. Individuals receiving 

behavioral health services have their own assessment tool 

to determine eligibility for their programs. 

Case managers evaluate clients to determine their service 

needs when they first are admitted into nursing facilities 

15  

Functional eligibility is based on a person’s unmet needs for personal care. A social worker, case manager, or nurse authorizes the number of service hours based on the person’s unmet needs. Functional eligibility requirements vary between funding sources.

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or into inhome or residential long-term care services, and 

Implications of Target Population and 

on a regularly thereafter. When a case manager learns 

Outreach and Referral Methods

a person is interested in moving out of a nursing facility 

Referrals are tracked by date of application for each 811 PRA 

or requires support to avoid institutionalization, he or 

opening as it occurs. In the event of multiple applications for 

she assesses the individual for the ability to succeed in 

limited units, the following priorities wil  apply.

community settings with supportive services, develops 

service plans, and coordinates transition services. 

•  First priority is individuals living in institutional settings 

or those that are homeless.

Referring 811 PRA Applicants to Available 

•  Second priority is individuals wishing to move from 

Units

residential settings.

Commerce notifies the RCL program manager that a 

•  Third priority is inhome clients needing other housing.

811 PRA unit will become available. The RCL housing 

program manager of the region where the unit is 

Property owners also establish their own waiting list per 

located sends out an email to the DSHS network and 

property. Although individual case managers may establish 

contracted service provider organizations in the region 

their own waiting lists, no centralized waiting list exists for 

with information about the property and unit. The email 

persons interested in obtaining 811 PRA subsidies. Those 

is sent to organizations serving applicants within HCS, 

interested in 811 PRA units learn about the program and 

Developmental Disabilities Administration, and DBHR. 

availability of 811 PRA units through their case manager. 

Case managers within the divisions with an individual 

Case managers vary in their knowledge and experience 

in their caseload interested in the 811 PRA unit at that 

of housing options and specifical y the 811 PRA program 

property forwards their client’s information to the housing 

and the speed in which they inform their client. These 

manager. The housing manager reviews the client’s CARE 

differences may lead to some eligible individuals having 

file to determine 811 PRA program eligibility. 

access to 811 PRA units sooner than others. 

Housing managers send referrals to property managers 

Housing Strategies

on a first-come, first-served basis as applicants are found 

eligible for 811 PRA. DSHS has no maximum number of 

Property and Unit Characteristics 

referrals that it sends to properties, although it has learned 

from experience with NED Category 2 that two to three 

Commerce signed its first RAC in April 2015 for a total of 

referrals are typical y needed for each available unit. 

four 811 PRA units. The first 811 PRA unit was occupied in 

April 2015. As of December 2015, Commerce had entered 

811 PRA tenants must complete the rental application 

into RACs with five different owners to provide rental 

and meet the owners’ requirements, the same as for 

assistance to 32 811 PRA units. Of these units, 11 were 

any other applicant to the property. Individual property 

leased to 811 PRA participants and 21 were not available 

owners establish their own rental criteria, including rental 

because they were occupied by other non-811 PRA 

history, credit, and criminal background checks. DSHS 

participants. As existing tenants move out, the units wil  

staff state that they try to work with property owners 

become available for 811 PRA participants.

and managers to make reasonable modifications to 

their resident eligibility criteria to accommodate some 

Table 7.4 shows the characteristics of the five properties 

of their clients. DSHS staff have reported that they 

under contract with Commerce as of December 2015. Al  

are not always successful in these efforts. They also 

properties are existing properties. Of the 32 units under 

reported difficulty in getting property owners to accept 

contract, 5 are studios, 24 are one-bedroom units, and 3 

participants’ medical deductions when determining 

are two-bedroom units. The existing portfolio of bedroom 

financial eligibility. As a result, some property owners 

size under contracts matches the demand, because most 

have been turning away otherwise-qualified individuals. 

of the target population are one-person households. Seven 

units, or 22 percent, are identified as being accessible for 

Waitlists are maintained by the 811 PRA site if it receives 

persons with mobility impairments. 

more applicants than it can accept. Each regional housing 

specialist maintains a waiting list for 811 PRA units in their 

811 PRA Units at Channel Cove

region. The waitlist is organized by region and managed by 

As part of the evaluation site visit, the study team visited 

the regional housing specialist. Through December 2015, 

Channel Cove, a property with 811 PRA units in La Conner, 

eight individuals were on a waiting list for 811 PRA units.

a seaside town north of Seattle. HOME Trust of Skagit 

was the first owner in Washington State to sign a Rental 

Assistance Contract with Commerce for four 811 

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Table 7.4 : Washington S t ate — Characteristics of Proper ties With   

811 P R A Rent al A ssist ance C ontract s

Property Name

City and County

811 PRA Units

Total Units

Percent of Total Units

Initial Occupancy Date

Mill Creek

Battle Ground

5

50

10

TBD

Channel Cove

La Conner 

4

21

19

4/2015

Boylston-Howel

Seattle

7

30

23

5/2015

Aspen Grove

Spokane

10

40

25

7/2015

El Estero

Spokane

6

123

5

TBD

PRA = Project Rental Assistance. TBD = to be determined. 

Source: Internal grantee report

PRA units. Home Trust is a nonprofit organization with a 

units, 26 of which were under RAC at the time of the site 

mission to secure long-term, affordable housing. Channel 

visit. The additional 72 units will be fil ed as vacancies 

Cove is an Housing Trust Fund-funded property with 

occur, assuming these other projects receive funding for 

rents restricted at 50 percent of AMI. Channel Cove has a 

construction and continue to be eligible for 811.

combination of affordable rental units and privately owned 

Outreach to owners.  Both Commerce and DSHS staff 

homes; many of its residents are long-time occupants. 

have extensively marketed the availability of 811 PRA units 

The Skagit Housing Authority had been managing the 

to developers and owners of state-funded units. Staff at 

affordable rental units of the property, but HOME Trust 

Commerce analyzed HTF-funded properties and owners 

planned to take over this responsibility in January 2016. 

that would be good candidates for the 811 PRA program, 

HOME Trust learned about the availability of 811 PRA 

including properties with 40 or more units or high numbers 

units through its relationship with the RCL regional 

of accessible units. The 811 PRA program staff attended 

program manager. A resident had resided at Channel 

local housing conferences and met with regional support 

Cove with rent subsidized through the Bridge Program 

network providers and homeless assistance providers. 

and the 24-month period was running out. HOME Trust 

Through November 2015, Commerce staff estimated they 

believed in the program goal and wanted to help the 

had spoken to approximately 50 owners. 

tenant remain in place. 

Owner application process. Owners can download 

HOME Trust signed an RAC for four units in April 2015; 

the application for funding on Commerce’s website and 

as of November 2015, two units had been occupied. Both 

submit their application by email. Commerce and DSHS 

occupied 811 PRA units are mobility accessible. Home 

staff developed the application process. The application 

Trust made some accessibility modifications to the units, 

is designed to help the owner determine if the property 

paid for out of its own funds. A tenant leaving a nursing 

is eligible for the 811 PRA program and how many 811 

facility fil ed one of the two occupied units. The remaining 

PRA units the property could support. No formal or 

two units are currently occupied and will be occupied 

written policies exist for reviewing or evaluating 811 PRA 

on turnover. However, availability of the two units may 

applications from owners. Applications are reviewed 

take 1 to 2 years, which is the average number of annual 

as they are received. Staff from both agencies review 

vacancies at Channel Cove.

applications for eligibility based on the number of units 

in the property, the 811 PRA units requested, and the 

Property Selection Methods 

types of subsidy already attached to units at the property. 

The 811 PRA program application period began in April 

Commerce and DSHS staff also review the owner for 

2015 and is continuously open until all 811 PRA funds are 

organizational capacity and the property’s proximity to 

awarded. Through November 2015, Commerce received 

transportation and services. 

18 applications for 811 PRA units. Four applicants were 

Commerce staff provide technical assistance to owners 

ineligible for the program, because the number of units set 

throughout the application process, and applications are 

aside for supportive housing or persons with disabilities 

usual y submitted after several conversations are held 

exceeded 25 percent of the total number of units. The 

between owners and Commerce staff. 

eligible applications included 14 properties with 98 

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Chapter 7. Washington Section 811 Project Rental Assistance Program 

Financing. The financing programs utilized for properties 

Unit and Tenant Turnover

eligible for 811 PRA funds are primarily the HTF and LIHTC. 

As of November 2015, no units had turnover. If 811 PRA 

Neither of these financing methods have set-asides or 

tenants are interested in moving to another unit within 

priority points specifical y for the 811 PRA units, but both 

the same property, they must follow the owner’s regular 

have priority points for developing housing for populations 

turnover policies. 

that include people with disabilities. 

Implementation Schedule

Service Provision and Coordination

In its 811 PRA application, Commerce had expected to 

The exact services 811 PRA participants receive depends 

occupy all 811 PRA units within 24 months of award. In its 

on their individual needs and the waiver services for which 

Cooperative Agreement Budget, Commerce planned to have 

they are eligible. Case managers work with consumers 

65 units under RAC by the close of year one and all 215 units 

within their division and develop person-centered plans that 

fil ed by the close of year 4. Commerce did not meet its 2015 

outline individual consumer medical and service needs. 

goal as it had 32 units under RAC at the end of the year. 

ALTSA waiver services include the fol owing services, 

The challenges Commerce experienced in recruiting owner 

which are available to 811 PRA participants according to 

participation in the program and in accessing vacant units 

their person-centered plan.

are explained in the section titled Successes and Challenges 

that fol ows and account for why the first year RAC goal 

•  Personal care.

was not met. Despite production lagging somewhat in 

•  Adult day care and day health.

2015, Commerce also had several other properties in their 

•  Environmental modifications.

application pipeline and expected to execute contracts with 

nine other properties for 66 811 PRA units. Combined, as of 

•  Home delivered meals.

November 2015, Commerce hoped to have at least 98 811 

•  Home health aide.

PRA units under lease by the end of 2016. 

•  Personal emergency response system.

Rent and Subsidy Levels

•  Skil ed nursing.

Commerce initial y applied for funding for 275 811 PRA 

•  Medical equipment and supplies.

units, determining this target by surveying housing providers 

•  Client support training.

who might be interested in participating in the 811 PRA 

program. Commerce found evidence that developers would 

•  Transportation.

accept 185 units in 45 properties. Commerce expected that 

•  Nursing services.

811 PRA units would turn over every 1.5 years, resulting 

in a request for 275 units. Commerce ultimately signed 

•  Community transition services.

a Cooperative Agreement with HUD for funding for 215 

•  Health care for workers with disabilities.

units. The number of units was downgraded in response to 

Persons with developmental disabilities and served by 

adjusted expectations of owner interest in the program and 

Developmental Disabilities Administration through the 

advice from HUD on how to calculate the 811 PRA budget. 

five Developmental y Disabled Waivers can access the 

Commerce had based its budget on the expectation that 

fol owing services.

the number of 811 PRA units under contract would increase 

over time, although HUD required a budget for 60 months of 

•  Behavior health stabilization services.

subsidy for each 811 PRA unit.

•  Behavior support and consultation.

Commerce established initial 811 PRA rents based on 

•  Behavioral health crisis diversion bed services.

50 percent of AMI. It selected the maximum rent level 

•  Client support training.

it could set for the funding application. The executed 

811 PRA budget assumes an average monthly contract 

•  Community access.

rent of $589, which is comprised of an average tenant 

•  Community guide.

contribution of $235 and an average 811 PRA subsidy of 

$354. This amount happens to be the lowest level of rent 

•  Emergency assistance.

for all six case studies. Given the difficulty Commerce 

•  Environmental modifications.

had finding units at this rent level, it eventual y requested 

•  Extended state plan services.

and received from HUD a waiver that enables units to 

rent at FMR or 50 percent AMI, whichever is higher.

•  Prevocational services.

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Chapter 7. Washington Section 811 Project Rental Assistance Program 

•  Respite care.

not yet received an executed Cooperative Agreement from 

•  Skil ed nursing.

HUD. Washington decided it would not apply for an award 

by the 2013–2014 811 PRA funding round as it wanted 

•  Specialized medical equipment and supplies.

to work out any program chal enges it encountered in 

•  Specialized psychiatric services.

implementing its 2012 811 PRA program before applying 

for more rental assistance. 

•  Supported employment.

•  Transportation.

Leveraging

Individuals served through the Division of Behavioral 

For the 2012 funding application, Commerce secured a 

Health and Recovery can access services for mental 

leverage commitment from the Housing Authority of Skagit 

il ness and alcohol and substance abuse. Services 

County for nine HCV set aside for nonelderly people with 

vary based on individual assessments, but may 

disabilities. At the time of the visit, the Housing Authority of 

include assessment services, treatment services, crisis 

Skagit County had not issued any HCVs. 

intervention and stabilization, case management, peer 

support, and residential mental health services. 

Program Administration, 

Transitional Services

Assessment, Information Systems, 

Transitional services, including housing setup costs, 

and Data Infrastructure

security deposits, and other moving expenses, vary 

As grantee, Commerce administers the 811 PRA program 

according to need and waiver or state plan eligibility. 

and reporting program outcomes to HUD. In 811 practice, 

Individuals enrolled in the RCL program have additional 

Commerce and DSHS administer the program jointly 

transitional services available to them that are not 

and work together to address issues that may arise. Staff 

available to other ALTSA consumers. For consumers with 

from the two agencies communicate regularly by phone 

developmental y disabilities, transitional services can be 

and email and utilize a secure, shared website to store 

provided as long as they are in an individual’s service plan. 

and share program data with one another. Although the 

Transitional services may be provided to an individual, at 

program is still in the initial stages, in general, Commerce 

the discretion of his or her case manager, by contracted 

asset management staff report that managing the 

Community Choice Guide. Community Choice Guides are 

contracting process for the first few properties has not 

funded by a combination of state and federal funding and 

been difficult aside from some chal enges in working with 

provide short-term services. Community Choice Guide 

HUD data systems as discussed in the fol owing sections.

transition services for individuals moving into 811 PRA 

Commerce and DSHS have an existing agreement to 

units include help locating housing, moving, obtaining 

share participant data with each other. In 2009, Commerce 

furniture and household goods, and other support needed 

entered into an agreement with the DSHS Research and 

to ensure a successful transition to new housing. ALSTA 

Data Analysis Division to col ect and share information on 

customers may also have access to other state-funded 

programs and participants in common. Commerce tracks 

resources that help individuals stabilize in community living 

client data through the Homeless Management Information 

that vary by waiver. In all three divisions, case managers 

Systems. DSHS tracks client data through the CARE data 

ensure ongoing connection to services for their clients 

system. The agencies plan to integrate the databases to 

after individuals move into 811 PRA units. 

track participant characteristics and outcomes, but did not 

Gaps in Services

have a timeline for this integration as of November 2015.

Gaps in services may occur because different services are 

In addition to the number of 811 PRA units leased 

available in different locations of the state. For example, 

and individuals served through the 811 PRA program, 

rural areas have less access to services. Individuals who 

Washington’s 811 PRA program goals include an increase in 

do not meet the 90-day institutional stay criteria do not 

the use of HCBS and a decrease in the use of institutional y 

qualify for services funded through MFP. 

based services. At the time of the evaluation site visit, 

Commerce and DSHS had not developed any specific 

2013 811 PRA Application

numerical targets for the reduction in use of institutional care 

or developed other 811 PRA program goals. 

At the time that HUD published its 2013–2014 Notice 

of Funding Availability on March 4, 2014, with funding 

applications due on May 5, 2014, the 2012 grantees had 

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Chapter 7. Washington Section 811 Project Rental Assistance Program 

Successes and Challenges

Other reasons that owners have for not applying for 

811 PRA funds include inexperience with HUD housing 

Program staff from Commerce, DSHS, and their 

programs and data systems, not wanting to be the first 

contracted partners discussed the initial successes and 

owners to try out a new program, and the requirement to 

challenges they have experienced in implementing the 

sign a 30-year agreement with Commerce when 811 PRA 

811 PRA program. The 811 PRA program staff reported 

subsidies are funded only for 5 years. 

some challenges in the initial program administration 

involving constraints of the 811 PRA program requirements 

Although the property recruitment process has been 

or structures. The evaluation team also identified some 

time-consuming and labor intensive, the strategies have 

program areas that could have an effect on the efficiency 

been successful in gaining owner interest in the program 

and effectiveness of the 811 PRA program.

and in raising program awareness. Staff point to in-person 

meetings with owners as the most beneficial method 

Program Successes and Replicable 

leading to successful owner applications. 

Innovations

Challenges in accessing vacant units. Two-thirds of 

Housing Bridge Program. DSHS’s Housing Bridge 

units under RAC were not available as of December 2015 

Program has been a key driver in utilizing 811 PRA funding. 

because they were occupied by other tenants when the 

The two are a good match because Bridge funding 

RAC was executed. Because the units can be fil ed only 

provides temporary rental subsidies for up to 24 months, 

with 811 PRA participants on turnover, Commerce staff are 

and 811 PRA funds are permanent sources of subsidy. 

uncertain when the units will be available to be leased by 

If property owners currently housing tenants receiving 

811 PRA tenants. 

Bridge subsidies can enroll in the 811 PRA program 

Challenges working with HUD data systems.  Because 

and switch the funding mechanisms, tenants can live 

Commerce was one of the first states with executed RACs 

uninterrupted in stable housing. 

and tenants residing in 811 PRA units, staff faced some 

Owner application process.  Commerce developed an 

challenges in navigating HUD’s data systems. The first 

application process for owners that makes it as easy as 

resident moved in April 2015, but the owner did not receive 

possible for owners to determine if their properties are eligible 

the first subsidy payment until September 2015. Voucher 

for 811 PRA units. Washington’s owner application forms have 

administration has been challenging for the individual 

been used as a model by another 2012 grantee that modified 

properties and for the contract administrator, Bremerton 

the Washington forms for use in its own 811 PRA program. 

Housing Authority. Management staff at the 811 PRA 

properties had to be trained on how to submit TRACS 

Program Challenges

data, leading to delays in submitting the information to 

Challenges in recruiting owners.  The most significant 

Bremerton Housing Authority. The software program that 

chal enge Commerce has faced in the first year of its 811 

Bremerton Housing Authority used for voucher processing 

PRA program is in recruiting owners to apply for 811 PRA 

was not designed to administer 811 PRA subsidies. 

funding. Commerce initial y expected that 80 owners 

Bremerton Housing Authority staff have to manual y check 

would be interested based on the results of a survey it 

each voucher invoice before submission, leading to further 

conducted prior to the funding application. Some owners 

delays in submitting the voucher to HUD for payment. 

who were initial y interested had properties that were 

Because parent vouchers include voucher data for all 811 

incompatible with the 811 PRA program due to the rule 

PRA properties, delays in one property submitting data 

that limits properties participating in the 811 PRA to have 

can hold up the entire parent voucher payment.16,17 The 

no more than 25 percent of units set aside for the target 

cost of obtaining the software systems necessary to enter 

population or for supportive housing. 

data into TRACS has also been a barrier for some property 

Applicants for 811 PRA grants receive additional points 

owners to participate in the 811 PRA program.

if they proposed the rent level. Washington may have 

underestimated the extent that a 50-percent AMI 

limit would pose on owner interest. (The waiver that 

Commerce received that al ows for the higher or FMR or 

50 percent AMI, likely will increase owner participation.) 

16  

Parent account refers to the “parent voucher” for the entire state. Each individual Section 811 PRA property within the state has a “child voucher.” 

17   HUD has since provided guidance that incomplete parent vouchers may be submitted to HUD and then revised once all child voucher data are received.

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References

References

National Low Income Housing Coalition (NLIHC). 2016a. 

“2016 State Housing Profile: Louisiana.” http://

nlihc.org/involvement/local/state/LA. 

——. 2016b. “2016 Congressional District Housing 

Profile—Louisiana.” http://nlihc.org/involvement/

Affordable Housing Advisory Board (AHAB). 2015. 

local/state/LA.

“State of Washington Housing Needs Assessment.” 

http://www.commerce.wa.gov/wp-content/

Plyer, Al ison. 2015. “Facts for Features: Katrina Impact.” 

uploads/2016/10/AHAB-Housing-Needs-

http://www.loyno.edu/jsri/news/facts-features-

Assessment.pdf. 

katrina-impact.

California Housing Finance Agency. 2016. “Section 811 

Social Security Administration. 2014a. “SSI Recipients 

Approved Projects. ” http://www.calhfa.ca.gov/

by State and County, 2014—California.” http://

multifamily/section811/projects/approved-

www.ssa.gov/policy/docs/statcomps/ssi_

projects.htm.

sc/2014/ca.html.

Eiken, Steve, Kate Sredl, Brian Burwel , and Paul 

——. 2014b. “SSI Recipients by State and County, 

Saucier. 2015. Medicaid Expenditures for Long-

2014—Washington.”  http://www.ssa.gov/policy/

Term Services and Supports (LTSS) in FY 2013: 

docs/statcomps/ssi_sc/2014/wa.html.

Home and Community-Based Services were a 

Sorrel s, Nick. 2015. “2015 Report on the State of 

Majority of LTSS Spending. Baltimore, MD: Centers 

Affordable Housing in Louisiana.” http://www.

for Medicare & Medicaid Services. 

uno.edu/cola/planning-and-urban-studies/docs/

The Henry J. Kaiser Family Foundation (KFF). 2011. 

State-of-Housing-in-Louisiana-2015.pdf. 

“Kaiser Commission on Key Facts. ” https://

Sweazy, Nicole. 2014. “Ma Maison (My Home): 

kaiserfamilyfoundation.files.wordpress.

Louisiana’s Ten Year Plan to End Homelessness.” 

com/2013/01/8196.pdf.

Baton Rouge, LA: Louisiana Housing 

——. 2017. “Total Medicaid Spending.”  http://kff.org/

Corporation. http://www.lhfa.state.la.us/assets/

medicaid/state-indicator/total-medicaid-spending/.

MaMaisonNicole.pdf. 

Legislative Analyst’s Office (LAO). 2015. “California’s 

Technical Assistance Col aborative, Inc. (TAC). 2012. 

High Housing Costs: Causes and Consequences.” 

“Taking Integrated Permanent Supportive Housing 

http://www.lao.ca.gov/reports/2015/finance/

(PSH) to Scale: The Louisiana PSH Program. 

housing-costs/housing-costs.pdf.

Program Design, Implementation Lessons & 

Policy Implications.” http://www.tacinc.org/

Louisiana Department of Health and Hospitals. 2013. 

media/10896/Louisiana Brief.pdf.

“Transforming Louisiana’s Longterm Care Supports 

and Services System: Initial Program Concept.” 

U.S. Census Bureau (Census Bureau). 2013. “2009–

http://www.laddc.org/files/LTSSConceptPaper.pdf. 

2013 5-Year American Community Survey. ” https://

——

www.census.gov/data/developers/data-sets/

. 2007. “Louisiana’s Plan for Choice in Long-Term 

acs-5year.html.

Care: Comprehensive Long-Term Care Reform 

Plan. ” http://new.dhh.louisiana.gov/assets/docs/

U.S. Department of Housing and Urban Development 

OAAS/LTCSysChange/ChoiceinLTCPlan.pdf. 

(HUD). 2015. “HUD 2015 Continuum of Care 

Homeless Assistance Programs Homeless 

Mierzwa, Erin, Kathryn P. Nelson, Harriet Newburger. 

Populations and Subpopulations.” https://www.

2010. “Chapter 5: Implications for Policymakers 

hudexchange.info/resource/reportmanagement/

and Suggested Research.” In  Affordability and 

published/CoC_PopSub_State_CA_2015.pdf.

Availability of Rental Housing in Pennsylvania. 

Philadelphia, PA: Federal Reserve Bank of 

——. 2016. “Picture of Subsidized Households.” 

Philadelphia: 41–45. https://www.philadelphiafed.

https://www.huduser.gov/portal/datasets/

org/community-development/publications/

assthsg.html.

special-reports/rental-housing/chapter-5.

——. n.d. “Non-Elderly Disabled (NED) Vouchers.” 

Minnesota Housing Partnership. 2016, March 30. 

http://portal.hud.gov/hudportal/HUD?src=/

2X4 Report: Issue 2. http://www.mhponline.org/

program_offices/public_indian_housing/

publications/2x4-report

programs/hcv/ned.

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References

Woodward, Alex. 2015. “New Orleans One of the 

Worst U.S. Cities for Renters,” Gambit, March 30. 

http://www.bestofneworleans.com/gambit/new-

orleans-one-of-the-worst-us-cities-for-renters/

Content?oid=2609106.

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Additional Reading

Additional Reading

Lipsom, Debra, Denise Hoffman, and Matthew Kehn. 

2014. “Non-Elderly Disabled Category 2 Housing 

Choice Voucher Program: An Implementation and 

Impact Analysis.” https://aspe.hhs.gov/system/

files/pdf/76986/Cat2Housing.pdf. 

U.S. Department of Housing and Urban Development. 

2012. HUD’s Fiscal Year (FY) 2012 Notice of Funding 

Availability (NOFA) for Section 811 Supportive 

Housing for Persons with Disabilities (Section 811) 

Project Rental Assistance Demonstration (811 PRA 

Demo) Program. Washington, DC: U.S. Department 

of Housing and Urban Development.

——. 2014. Solicitation DU208WP-14-R-0010, Request 

for Quotes: Housing for Persons with Disabilities, 

Evaluation of the Section 811 Project Rental 

Assistance Program – Phase I. Washington, DC: U.S. 

Department of Housing and Urban Development.

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U.S. Department of Housing and Urban Development

Office of Policy Development and Research

Washington, DC 20410-6000

January 2018

Document Outline

Table 1.1: Program Design in the Case Study States 

Table 1.2: Housing Context in the Case Study States

Table 1.3: Services Context in the Case Study States

Table 2.1: Agency Roles in the 811 PRA Program

Table 2.2: California—Planned and Actual Time Spent on 811 PRA Program by Key Staff

Table 2.3: California—Overview of Major Federal Housing Programs

Table 2.4: Characteristics of Properties With 811 PRA Units

Table 3.1: Louisiana Federal Housing Programs

Table 3.2: Properties Under RAC or Application in Process

Table 3.3: Louisiana 1915(c) HCBS Waivers

Table 4.1: Maryland 811 PRA Program Division of Responsibilities

Table 4.2: Other Federal Housing Programs in Maryland

Table 4.3: 1915(c) Waivers (Home- and Community-Based Services)

Table 4.4: Average Rents in Baltimore (2012 Versus 2015)

Table 4.5: Average Rents in Washington, D.C. (2012 Versus 2015)

Table 4.6: Leveraged Housing Choice Vouchers

Table 5.1: Minnesota—811 PRA Program Division of Responsibilities

Table 5.2: Minnesota—Other Federal Programs

Table 5.3: Minnesota—Services Available to 811 Project Rental Assistance Participants

Table 6.1: Pennsylvania—811 PRA Program Roles and Responsibilities

Table 6.2: Pennsylvania—Responsibilities of Local Lead Agencies and Stakeholders

Table 7.1: Washington State—Agency Roles in the 811 PRA Program

Table 7.2: Washington State—Overview of Major Federal Housing Programs

Table 7.3: Washington State—Rental Housing Markets

Table 7.4: Washington State—Characteristics of Properties With 811 PRA Rental Assistance Contracts

Executive Summary

Background of the Section 811 Project Rental Assistance Program 

The Section 811 and PRA Programs

Evaluation of the Section 811 PRA Program

A Descriptive Overview of the Six Case Study States 

811 Program Designs

Housing Context

Services Context

How Does the Section 811 PRA Model Fit? 

California Section 811 Project Rental Assistance Program

Introduction

Grantee Partnership, Organizational Structure, and Management 

Background Leading to the 2012 811 PRA Application

Program Financial Structure 

State Context: Housing Programs

Housing

Existing Programs 

How the 811 PRA Program Fits With Other State Programs

How Major Housing Assistance Programs Are Used To Assist the Target Population

Local Issues—Housing Affordability and the Rental Market

Service Provision and Healthcare

Current Status of Service and Healthcare Programs That Support Community Living

Recent Changes in Programs That Support Integrated Community Living 

How the 811 PRA Program Fits With the Service and Healthcare Programs That Support Community Living

California’s Olmstead Plan

Population Served

Comparison of Target Populations: Planned Versus Actual

Skilled Nursing Facilities

Regional Centers

Developmental Centers

Outreach, Referral, and Application

Outreach, Referral, and Application Process

Target Population Screening and Eligibility

Implications of Target Population and Outreach and Referral Methods

Housing Strategies

Property and Unit Characteristics 

Property Selection Methods and Financing

Implementation Schedule

Rent and Subsidy Levels

Unit and Tenant Turnover

Service Provision and Coordination

Ongoing Services

Coordination of Services and Housing

Gaps in Services

2013 811 PRA Application

Leveraging

Program Administration, Assessment, Information Systems, and Data Infrastructure

Successes and Challenges

Factors Contributing to Program Success

811 PRA Program Challenges

Louisiana Section 811 Project Rental Assistance Program

Introduction

Grantee Partnership, Organizational Structure, and Management

Background

Partnerships and Organizational Structure

Program Financial Structure

State Context: Housing Programs

Housing Policy

Existing Programs

Rental Housing Market

Service Provision and Healthcare

Policy

Recent Changes Supporting Community Living

Expansion of Medicaid 1915(c) HCBS Waivers

Olmstead Plans, Settlements, Consent Decrees

Population Served

Outreach, Referral, and Application

Outreach, Referral, and Application Methods

Target Population Eligibility

Implications of Outreach, Referral, and Application Methods on Individuals Referred and Placed

Housing Strategies

Property and Unit Characteristics

Property Selection Methods and Financing

Property Selection Process

Implementation Schedule

Rent and Subsidy Levels

Unit Offers and Tenant Turnover

Service Provision and Coordination

Service Models

Coordination of Services and Housing

Service Provision (Types, Transition Versus Ongoing, by Target Population, Gaps)

2013 811 PRA Application

Leveraging

Program Administration, Assessment, Information Systems, and Data Infrastructure

Successes and Challenges

Successes

Challenges

Maryland Section 811 Project Rental Assistance Program

Introduction

Grantee Partnership, Organizational Structure, and Management

Overview

Maryland Department of Housing and Community Development

Maryland Department of Health and Mental Hygiene

Maryland Department of Disabilities

Partnership

Design and Structure of Maryland’s 811 PRA Program

811 PRA Roles and Responsibilities

Program Staffing

State Context: Housing Programs

Financing

Supportive Housing Programs

Additional Federal Housing Programs

Service Provision and Healthcare

Funding

Olmstead Settlement

Population Served

Outreach, Referral, and Application

Outreach

Referral and Application

Implications

Housing Strategies

Property and Unit Characteristics

Rent and Subsidy Levels

Unit and Tenant Turnover

Service Provision and Coordination

Service Provision

Coordination

2013 811 PRA Application

Leveraging

Housing Choice Vouchers

Other Sources Leveraged

Program Administration, Assessment, Information Systems, and Data Infrastructure

Program Administration

Financial Management

Information Systems

Successes and Challenges

Challenges

Successes

Minnesota Section 811 Project Rental Assistance Program 

Introduction

Grantee Partnership, Organizational Structure, and Management

Overview

Minnesota Housing Finance Agency

Minnesota Department of Human Services

Minnesota Housing and Department of Human Services Partnership

Design and Structure of Minnesota’s 811 PRA Program

811 PRA Roles and Responsibilities

Program Funding

State Context: Housing Programs

Housing Programs

Rental Housing Market

Service Provision and Healthcare

Changes in Medicaid Resources

Olmstead Settlement

Population Served

Outreach, Referral, and Application

Outreach

MFP Outreach

PATH Long-Term Homelessness Outreach

Referral and Application

Implications

Housing Strategies

Property and Unit Characteristics

Determining the Initial Rent Level

Unit and Tenant Turnover

Service Provision and Coordination

Service Provision

Coordination of Services

2013 811 PRA Application

Leveraging

Housing Choice Vouchers

Other Sources Leveraged

Program Administration, Assessment, Information Systems, and Data Infrastructure

Program Administration

Financial Management

Information Systems

Successes and Challenges

Successes

Challenges

Pennsylvania Section 811 Project Rental Assistance Program 

Introduction

Grantee Partnership, Organizational Structure, and Management

Partnerships and Organizational Structure

Partnership Between PHFA and DHS

State Context: Housing Programs

Housing

Service Provision and Healthcare

Policy and Funding: Prioritization of Medicaid Resources Toward Home- and Community-based Services

Existing Efforts

Olmstead Plan and Settlements

Population Served

Outreach, Referral, and Application

Housing Strategies

Property and Unit Characteristics 

Property Selection Methods and Financing

Implementation Schedule 

Rent and Subsidy Levels

Unit and Tenant Turnover

Service Provision and Coordination

Service Models

Coordination of Services and Housing

Service Provision (Types, Transition Versus Ongoing, by Target Population, Gaps)

2013 811 PRA Application

Leveraging

Program Administration, Assessment, Information Systems, and Data Infrastructure

PHFA Program Monitoring

DHS Program Monitoring

Successes 

Strong Partnerships

Leveraging Existing Programs

Challenges

Securing One-Bedroom Units 

Staff Turnover

Breadth of Geographic Differences

Shift in Housing Strategy

Washington Section 811 Project Rental Assistance Program 

Introduction

Grantee Partnerships Organizational Structure, and Management

Application Background 

Partnerships and Organizational Structure

Program Financial Structure 

State Context: Housing Programs

Housing Programs and Funding

Existing Housing Programs That Serve People With Disabilities

Additional Federal Housing Programs 

How the 811 PRA Program Fits With Other State Housing Programs

Rental Housing Market

Service Provision and Healthcare

Current Status of Service and Healthcare Programs That Support Community Living

Washington’s Olmstead Plan

Local Issues: Homelessness

Population Served

Outreach, Referral, and Application

Participant Outreach and Referral Process

Participant Screening and Eligibility

Referring 811 PRA Applicants to Available Units

Implications of Target Population and Outreach and Referral Methods

Housing Strategies

Property and Unit Characteristics 

811 PRA Units at Channel Cove

Property Selection Methods 

Implementation Schedule

Rent and Subsidy Levels

Unit and Tenant Turnover

Service Provision and Coordination

Transitional Services

Gaps in Services

2013 811 PRA Application

Leveraging

Program Administration, Assessment, Information Systems, and Data Infrastructure

Successes and Challenges

Program Successes and Replicable Innovations

Program Challenges

References

Additional Reading