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Unlocking the Door an Implementation Evaluation of Supportive Housing for Active Substance Users in New York City

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Unlocking the Door an Implementation Evaluation of Supportive Housing for Active Substance Users in New York City Unlocking the Door An Implementation Evaluation of Supportive Housing for Active Substance Users in New York City The second paper from CASAHOPESM (full version) Acknowledgements from the Authors The National Center on Addiction and Substance Abuse at Columbia University (CASAColumbiaTM) and the Corporation for Supportive Housing (CSH) would like to thank the many individuals who contributed to this report. CSH’s Richard Cho played a primary role in designing the implementation assessment approach including data collection and analysis, direct data collection and interviewing, and was the primary author of the report. CASAColumbia’s Clare Davidson led the interviews with program staff, designed data collection instruments, aided in the transcribing and coding of data, assisted and reviewed the approach used in this assessment, and was primarily responsible for draft revisions and the creation of the brief report. Bryan Kutner played a key role in the collection of information on programs, the facilitation of case manager focus groups, the analysis of data, and assisted in drafting several sections of the report. CSH’s Rachel Fuller and Jacquelyn Anderson helped to design interview and data collection instruments, analyze interview data, and also assisted in drafting sections of the report. Rachel also played a key role in assembling and reviewing various sections of the report. CASAColumbia’s Jeremy Sorgen and Benjamin Goldman helped transcribe and code data. CASAColumbia’s Jon Morgenstern, Aaron Hogue, and Charles Neighbors and CSH’s Ryan Moser provided sound advice, guidance, and oversight to this effort as well. In addition, CASAColumbia and CSH would also like to thank the public officials interviewed for this report, along with many others who were involved in the creation of the NY/NY III agreement and Supportive Housing for Population E, who made this project possible. Most importantly, acknowledgment and gratitude is given to the staff in the nine Population E agencies—BRC, the Bridge, CAMBA, Common Ground Community, the Doe Fund, Project Renewal, Turning Point, Urban Pathways, and Volunteers of America of Greater New York—who allowed us to peer into their day-to-day activities and generously shared their perspectives. About The National Center on Addiction and Substance Abuse at Columbia University (CASAColumbia) CASAColumbia is a science-based, multidisciplinary organization focused on transforming society’s understanding of and responses to substance use and the disease of addiction. Founded in 1992 by Former U.S. Secretary of Health, Education, and Welfare Joseph A. Califano, Jr., CASAColumbia remains the only national organization that assembles under one roof all of the professional skills needed to research and develop proven, effective ways to prevent and treat substance abuse and addiction to all substances — alcohol, nicotine as well as illegal, prescription and performance enhancing drugs — in all sectors of society. About the Corporation for Supportive Housing For over 20 years, CSH has led the national supportive housing movement. We help communities throughout the country transform how they address homelessness and improve people’s lives. CSH develops innovative program models, provides research-backed tools and training, offers development expertise, and collaborates on public policy and systems reform. And, CSH is a certified community development financial institution (CDFI). We make it easier to create and operate high-quality affordable housing linked to services. To date, CSH has made over $300 million in loans and grants, and has been a catalyst for over 150,000 units of supportive housing. For information about CSH, please visit www.csh.org. Unlocking the Door: An Implementation Evaluation of Supportive Housing for Active Substance Users in NYC i Permissions Requests CASAColumbia and CSH encourage nonprofit organizations and government agencies to freely reproduce and share the information in this paper. The organizations must cite CASAColumbia and CSH as the source and include a statement that the full document is posted on CASAColumbia’s website, www.casacolumbia.org/CASAHOPE. Permissions requests from other types of organizations will be considered on a case-by-case basis; please forward these requests to [email protected]. Unlocking the Door: An Implementation Evaluation of Supportive Housing for Active Substance Users in NYC ii Table of Contents Introduction ...................................................................................................................................................................... 1 Section One: Background and History of Population E Supportive Housing ........................................................ 3 What is Population E? ....................................................................................................................................................... 3 New York/New York III Agreement Overview ................................................................................................................... 3 NY/NY III Housing Unit Production Goals by Population ............................................................................................. 4 Agencies Designated to Implement NY/NY III.............................................................................................................. 5 Centralized Eligibility and Referral Process for NY/NY III Population E ..................................................................... 7 Housing First in the History of Supportive Housing in New York City ............................................................................. 8 The Origin of Supportive Housing in New York City ................................................................................................... 8 The Emergence of Housing First ............................................................................................................................... 10 Section Two: Methods................................................................................................................................................... 13 Data Collection and Analysis ........................................................................................................................................... 13 Interviews with Key Stakeholders ............................................................................................................................... 13 Interviews with Program Directors and Focus Groups with Program Case Manager .............................................. 13 CSH’s Seven Dimensions of Quality for Supportive Housing.................................................................................... 16 Official Public and Program Documents ..................................................................................................................... 16 Questionnaires Administered to Program Staff .......................................................................................................... 16 Site Visits and Learning Collaboratives ...................................................................................................................... 17 Section Three: Impetus and Intended Goals of Population E Supportive Housing ............................................ 18 Impetus Behind Population E Supportive Housing ........................................................................................................ 18 Intended Goals and Outcomes of Population E Supportive Housing ............................................................................ 20 Intended Design of Population E Supportive Housing ................................................................................................... 21 The City and State’s Process for Designing Population E ......................................................................................... 21 Program Structure, Approach, and Components ....................................................................................................... 22 Population E Supportive Housing Theory of Change..................................................................................................... 27 Section Four: Examination of Population E Supportive Housing Implementation.............................................. 32 Select Key Program Characteristics ............................................................................................................................... 33 Dimension 1: Administration and Management ............................................................................................................. 33 Dimension 2: Housing Search, Housing Quality, and Landlord Relations .................................................................... 39 Dimension 3: Access to Housing, Tenant Selection, and Eviction Prevention ............................................................. 43 Dimension 4: Supportive Services Design and Delivery ................................................................................................ 47 Dimension 5: Tenant Rights, Choice, and Participation ................................................................................................. 62 Dimension 6: Tracking Outcomes and Defining Success .............................................................................................. 64 Stakeholders’ Component Assessment Summary ........................................................................................................
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