HOPE VI: CCoommmmunity Buildingunity Building Makes aMakes a DifDifferferenceence

February 2000February 2000

U.S. Department of Housing and Urban Development Office of Public and Indian Housing Office of Public Housing Investments Office of Urban Revitalization

HOPE VI: Community Building Makes a Difference

February 2000

Prepared by: Arthur J. Naparstek Susan R. Freis G. Thomas Kingsley with Dennis Dooley Howard E. Lewis

Prepared for: U.S. Department of Housing and Urban Development Office of Public and Indian Housing Office of Public Housing Investments Office of Urban Revitalization

HOPE VI: Community Building Makes a Dif ference

Foreword

t the beginning of a new centur y but HOPE VI aimed also to transform Athat will bring changes in so many lives. The program was designed to open spheres, our underlying thinking about new paths for public housing residents, public housing issues is also beginning linking them to jobs and a better futur e. to shift. This status report discusses that second set of goals: the supportive ser vices and Once we simply asked: “How can we community building efforts of HOPE VI provide affordable housing for poor in cities across the country. people?” Community building, as explained in Now, although the management and this book, is an approach that combats supply of public housing will always the isolation of public housing residents be critical concerns, we are beginning in several ways. It increases the skills of to pose a new, more complex question: individuals so they can take better “How can we transform our public hous­ advantage of mainstream opportunities. ing stock into bridges of opportunity It also strengthens public housing com­ to help people get out of poverty?” munities so they may better support the A large part of the answer, as is becom­ self-sufficiency efforts of individuals and ing increasingly clear, is to reduce the families. Also, it fosters partnerships isolation that separates public housing among housing authorities, residents, residents from the opportunity structures local organizations, and the business of the larger community. community that link residents with a world of resources that can help fuel Since its beginnings in 1992, the HOPE their quest for a better life. VI Urban Demonstration Program has worked to reduce isolation where it is The HOPE VI experience has much to most severe: in the largest and most dis­ teach those who cherish the goal of mak­ tressed public housing projects in the ing public housing into a bridge to a bet­ nation. The program set out to rebuild ter future, and this book captures many the physical plants of the developments, of these valuable lessons.

—Andrew Cuomo Secretary of Housing and Urban Development

Foreword i

HOPE VI: Community Building Makes a Dif ference

Preface

he HOPE VI program—as the negative habits, or the self-defeating atti­ Tevidence in this book demon­ tudes that are the legacy of growing up strates—is indeed cause for hope in in poverty and hopelessness. communities where once there was The innovative thinking that public none. Residents who once despaired of housing authorities and residents have changing anything about their situations brought to the HOPE VI process and are transforming their lives. Innovative the imaginative partnerships they have partnerships are being developed with forged with area businesses and other local institutions that reconnect long- institutions are heartening. Even better, marginalized people to mainstream they are replicable. opportunities. Public housing residents in growing numbers go to work each To that end, we have worked to fill this morning with a new look of pride in book with many useful—and sometimes their eyes, and they come home at the sobering—lessons learned, detailed end of the week with a paycheck in their examples, and practical tips on making pockets. And crime is being dramatically such programs work for people. Perhaps reduced by neighbors who are rediscov­ the most valuable lesson of all is that ering the link between their community’s there is no cookie-cutter, one-size-fits-all prospects and their own. approach to achieving this kind of suc­ cess. As made clear by our pr ofiles of None of this is happening by accident, or seven housing communities and the simply as a result of the handsome new dozens of supplementary best practices buildings or freshly landscaped grounds included in the appendix, many different that are a part of physical revitalization approaches are possible and desirable. efforts. It is happening because of the Each community must find its own way, critical provision written into the original building on its own special mix of HOPE VI legislation to address people strengths and opportunities. The strate­ and opportunities as well as bricks and gies of community building must involve mortar. From the beginning, HOPE VI the genuine commitment of the housing has been about taking practical steps to authority to changing the way it operates create a community that supports family and thinks about both its function and life, children, and the aspirations of peo­ its residents. ple who have been marginalized and cut off from life’s opportunities. Readers are urged to visit HOPE VI communities, meet and talk with the r es­ HOPE VI offers residents ways to access, idents, and see these programs for them- pursue, and secure the benefits of these selves. Visitors will come away not only opportunities. In many cases, this first with a feeling of optimism, but also with means help dealing with health or family a sense of long-pent-up energy released problems, shortcomings in education, at last and applied to positive activities

Preface iii HOPE VI: Community Building Makes a Dif ference

such as creating new hope for children, can help or hinder, thwart or jobs for their parents, and the kind of support the efforts of good people to communities anyone would want to live change the way things have been. HOPE in. This book is dedicated to that spirit VI is giving many public housing com­ and the people working to har ness it. munities an opportunity—and the means—to do just that. Systems alone, even reformed systems, cannot change people’s lives. But they

—Arthur J. Naparstek Senior Associate, The Urban Institute Grace Longwell Coyle Professor, Case Western Reserve University

iv Preface HOPE VI: Community Building Makes a Dif ference

Introduction

OPE VI represents the most obligation to self-responsibility and Hdramatic change of direction in the giving back to one’s community.1 60-year history of U.S. public housing The Senate report commented that policy. The program promises nothing “Public housing residency, for many rea­ less than full transformation of the sons within the last two decades, has all nation’s most distressed public housing too often become a way of life, instead of projects—places that have been both a bridge to a better life.” HOPE VI was physically and socially devastated by intended to remedy this pattern by pro­ extraordinary concentrations of poverty viding supportive services such as literacy and years of disinvestment. training; job preparation, training, and Congress wanted change in 1993 when retention; personal management skills; it authorized $300 million in HOPE VI daycare; youth activities; health services; Urban Revitalization Demonstration community policing or security activities; funding. HOPE VI was aimed at r ebuild­ and drug treatment. Throughout the rest ing the most physically distressed public of the decade, Congress has continued to housing in the worst neighborhoods of support the program and, over 6 years, the nation’s largest cities, and it was has provided a total of $4.2 billion to intended to foster self-sufficiency and fund HOPE VI in approximately 130 empowerment among public housing public housing developments. residents. The program mandated not Housing authorities, residents, and their just bricks-and-mortar changes but also community partners have now accumu­ the provision of supportive services for lated more than 5 years of experience residents. According to a Senate report with this ambitious program. This publi­ on the 1992 bill that initiated HOPE VI: cation examines best practices that have The goal of HOPE VI is thr eefold: emerged from the community-building (1) shelter—to eliminate dilapidated, and supportive services side of HOPE and in many dangerous instances, VI. The HOPE VI program is known structures that serve as homes for both for its physical revitalization of hundreds of thousands of Americans; deteriorated, outmoded public housing (2) self-sufficiency—to provide resi­ projects and for its success in self- dents in these areas with the opportu­ sufficiency and community-building nity to learn and acquire the skills activities. These lessons in community needed to achieve self-sufficiency; and building may be applied to all ef forts to (3) community sweat equity—to instill increase opportunities for residents of in these Americans the belief that with low-income neighborhoods. The infor­ economic self-sufficiency comes an mation in this book, therefore, should

1Senate Report 102–356, Committee on Appropriations, August 3, 1992, p. 40.

Introduction v HOPE VI: Community Building Makes a Dif ference

be of interest not only to public housing advocacy groups, service providers, and staff and residents, but also to local all others striving to alleviate poverty and national policymakers, along with through community revitalization and private-sector community stakeholders, the creation of sustainable communities community-based nonprofit organizations, for all. ❖

—Senator Barbara Mikulski

vi Introduction HOPE VI: Community Building Makes a Dif ference

Acknowledgments

he authors wish to thank Andrew in fostering broad community TCuomo, Secretary of Housing and participation. Urban Development, for his unwavering We also wish to thank Milan Ozdinec, commitment to the inner cities of director of HUD’s Office of Urban America and this nation’s poor people as Revitalization, who provided a thought­ reflected in the support that the depart­ ful early reading of the manuscript; and ment has provided to this effort. We Ron Ashford, who coordinates the extend a special thanks to Elinor Bacon, Community and Supportive Services Deputy Assistant Secretary of the Office Technical Assistance Program for the of Public Housing Investments, for her HOPE VI sites. The authors also thank guidance on this work and the HOPE VI Milda Saunders, formerly of the Urban program. Institute, and Carolee Gearhart of Aspen The authors are deeply grateful to Systems Corporation for their contribu­ Senator Barbara Mikulski (D-Maryland), tions to the manuscript. ranking member of the Senate This book would not have been possible Appropriations Subcommittee for the without the cooperation of housing Veterans Administration, Housing and authority directors and staff, public Urban Development, and Independent housing residents, and their community Agencies, who is the initiator and long- partners, who are making the vision of time proponent of HOPE VI legislation. HOPE VI a reality in cities all around We also thank Senator Christopher Bond the country. We thank them for gener­ (R-Missouri), chair of the Appropriations ously sharing their time, experiences, Subcommittee, for his continuing interest and wisdom with us. ❖ in and support of HOPE VI, particularly

Acknowledgments vii

HOPE VI: Community Building Makes a Dif ference

Contents

Foreword ...... i Preface ...... iii Introduction ...... v Acknowledgments ...... vii Chapter 1: HOPE VI—Making Changes ...... 1 Why the HOPE VI Approach Was Adopted ...... 3 Effects of HOPE VI on Lives, Neighbor hoods, and Institutions ...... 4

Chapter 2: Many Paths to Excellence— Profiles of Seven HOPE VI Sites ...... 9 Seattle—Shifting the Paradigm ...... 10 Columbus—A Catalyst for Neighborhood Revitalization ...... 17 Atlanta—A Technology-Oriented Elementary School Anchors a Mixed-Income Neighborhood ...... 23 Oakland—Reclaiming a Community Through Partnership ...... 31 Milwaukee—Family Resource Center Combines Many Services To Foster Employment ...... 40 Baltimore—Providing Comprehensive Social Services ...... 47 El Paso—VISTAs of a New Community ...... 53

Chapter 3: Lessons Learned ...... 61 General Lessons ...... 61 Additional Lessons ...... 62 HOPE VI and Community Building ...... 68

Appendix: Best Practices Using a Community-Building Approach to Self-Sufficiency ...... 69

Contents ix

HOPE VI: Community Building Makes a Difference

Chapter 1 HOPE VI—Making Changes

he HOPE VI program, with its The HOPE VI program rests on commu­ Tambitious mission to transform the nity building. It involves the participa­ most distressed public housing projects tion of both public housing residents in the nation, works on both impr oving living at HOPE VI sites awaiting r evital­ the physical quality of public housing ization and the surrounding community. and expanding the opportunities of The spirit of HOPE VI is one of consul­ its residents. Although the physical tation and collaboration among the improvements it has created have often housing authority, affected residents, been dramatic, the HOPE VI program social service providers, and the broader may ultimately be judged more on its community. effectiveness in helping low-income This book reports in detail on seven families improve the quality of their HOPE VI sites where the community- lives and move toward self-sufficiency building approach has been tried with than by its accomplishments in bricks heartening success: NewHolly (formerly and mortar. Holly Park) in Seattle, Washington; This book primarily addresses the people Rosewind (formerly Windsor Terrace) in side of the HOPE VI stor y. It describes Columbus, Ohio; Centennial Place (for­ how housing authorities, residents, and merly Techwood/Clark Howell Homes) their community partners are working in Atlanta, Georgia; Hillside Terrace in with an approach that we call community Milwaukee, Wisconsin; Lockwood building. Community building is an Gardens in Oakland, California; Pleasant approach to fighting poverty that oper­ View Gardens (formerly Lafayette ates by building social and human capi- Courts) in Baltimore, Maryland; and tal.1 It differs from conventional social Kennedy Brothers Memorial Apartments service provision in that it is an asset- in El Paso, Texas.2 Compared with other oriented, people-based approach. It sup- public housing projects, these sites had ports people in poor neighborhoods as high rates of welfare dependency, minor­ they rebuild social structures and rela­ ity concentration, and single-parent tionships that may have been weakened families. They also tended to have high by decades of urban ills—outmigration, crime rates and were considered by disinvestment, and isolation (exhibit 1.1). neighboring communities to be havens

1 See Community Building in Public Housing: Ties that Bind People and their Communities, by Arthur J. Naparstek, Dennis Dooley, Seattle’s NewHolly builds stronger communities and better and Robin Smith. Washington, DC: U.S. Department of Housing and Urban Development, April 1997. See also Community Building: opportunities. Coming of Age, by G. Thomas Kingsley, Joseph McNeely, and James O. Gibson. Baltimore, MD: The Development Training Institute and the Urban Institute, April 1997. 2 An Urban Institute/Aspen Systems research team visited these seven HOPE VI pr ojects in the winter and spring of 1999.

Chapter 1 1 HOPE VI: Community Building Makes a Difference

Exhibit 1.1

HOPE VI and the Principles of Community Building HOPE VI differs from other public housing legislation by incorporating the principles of community building. These principles evolved from a 1992 report of the Cleveland Foundation Commission on Poverty. The commission report laid out a blueprint to replace fragmented, deficit-driven, top-down programs with approaches that were comprehensive, asset-driven, and guided by individual public housing authorities, residents, and their neighbors—in short, a community-building agenda. 3 According to Senator Barbara Mikulski, ranking member of the Senate Appr opriations Subcommittee for the Veterans Administration, Housing and Urban Development, and Independent Agencies, the Commission’s 1992 report was influential in defining the intellectual basis for the HOPE VI pr ogram. The following principles lie at the cor e of the community-building approach4: ■ Involve residents in setting goals and strategies. Resident involvement requires collaboration, inclusion, communication, and participation. Experience has shown that top-down solutions imposed on communities do not work because they tend to undermine the spirit of local initiative necessar y for long-term success. Local communities need to be actively involved in shaping strategies and choices. ■ Begin with an awareness of assets as well as problems in the community. Assets include both material and human r esources, such as experience, skills, and the demonstrated r eadiness to commit energies to a sustained effort. Communities that lie near the downtown area or a community institution—such as a college, university, or health center—hold tremendous potential if the right incentives or supportive ser vices are put in place. ■ Work in communities of manageable size. The HOPE VI program structures its efforts on a relatively small scale, one housing project at a time. Further, it often replaces large buildings and developments with smaller ones, in an ef fort to deconcentrate the poor. The program does not target changes across an entire housing authority or city, but demonstrat­ ed success may invite a citywide ripple ef fect. ■ Tailor unique strategies for each neighborhood. Workable solutions tend to be community specific, because neighbor hoods have different characteristics, resources, natural advantages, strengths, traditions, potential community partners, and leadership. One size does not fit all. ■ Maintain a holistic view of service delivery. Since poverty is the r esult of interlocking problems that reinforce and compli­ cate one another, service delivery must be comprehensive and integrated. For example, a mother on welfar e cannot hope to get to work without childcar e, transportation to work, healthcare for herself and her children, job training, and perhaps counseling and followup as she adjusts to the challenges of a new r outine. ■ Reinforce community values while building human and social capital. The ability to set norms and standar ds of acceptable behavior is a basic function of community. At its core is a body of shared values to which the members of the communi­ ty subscribe. One sign of a public housing community coming to life is when r esidents begin to work together to reassert responsible standards and positive values. Activities such as community policing, security pr ograms, and resi­ dent participation in setting standards for behavior begin to deter the corr osive values of the crime and drug cultur e, opening the way for positive community values to flourish. ■ Develop creative partnerships with institutions in the city to pr ovide access to opportunities. The establishment of community partnerships is a powerful tool to deal with the isolation and mar ginalization of poor people. Partnerships with busi­ nesses and other private-sector organizations, mandated in the HOPE VI legislation, ar e proving to be the key to job training, job placement, and the supportive ser vices that make it possible for family heads to work. They give r esidents access to a wide range of opportunities and r esources. These principles guided the development of community building thr ough supportive services and resident engagement in the seven sites visited. They are woven throughout the profiles in chapter 2 and the best practice examples in the appendix.

3The Cleveland Community-Building Initiative: The Report and Recommendations of the Cleveland Foundation Commission on Poverty . Cleveland, OH: Mandel School of Applied Social Sciences, Case Western Reserve University, 1990. 4 For more information, see Community Building in Public Housing, op. cit.

2 Chapter 1 HOPE VI: Community Building Makes a Difference

for drug trading and a negative influence One basic source of problems has on the neighborhood. been the isolation of public housing. Chapter 2 presents the seven best prac­ Historically, local politics has often tice case studies. Chapter 3 presents sought to physically separate the poor lessons learned from the case examples from mainstream society, and this clearly in chapter 2, and the more diverse best had its impact on public housing. The practices in HOPE VI and other public large highrise and barracks-style projects housing developments are collected in that became the focus of the HOPE VI the appendix. Graduation celebration at HOPE VI site Lockwood Gar dens program were frequently located on iso­ marks the moving of residents from welfare to work. lated sites—behind freeways, on leftover In order to write this book, the authors parcels near industrial developments, examined program documents, visited family units), and another 23 percent are or simply at great distances from other nine sites, and carried out face-to-face in buildings with three to six stories. 5 residential neighborhoods. Even when interviews with housing authority staff, In the mid-1990s, only 75 of the 3,400 placed adjacent to other residential com­ residents, and community partners. The local public housing authorities manag­ munities, they were typically designed to research team chose these seven best ing the program exhibited serious man­ be cut off from them, for example, with practice case studies in consultation with agement deficiencies (that is, enough massive superblocks with internal road- the U.S. Department of Housing and deficiencies that they warranted designa­ ways that did not connect to the sur­ Urban Development (HUD). The project tion as troubled by the U.S. Department rounding street pattern. contacted all housing authorities of Housing and Urban Development). 6 engaged in HOPE VI programs for sug­ Conditions in larger and more distressed But by the late 1980s, much of public gestions on best practices to include. projects placed stresses on the most housing—especially in large cities—had Given its focus on case examples, best conscientious housing authorities. Low become deteriorated and physically iso­ practices, and lessons learned from the tenant incomes and limits on the per­ lated from amenities and opportunity. HOPE VI experience, this work is not a centage of income that tenants had to In 1992 a federal commission estimated formal program evaluation. However, pay for rent created a substantial gap that approximately 86,000 units—about considerable efforts were made to report between rental revenues and actual 7 percent of the total public housing objectively on what was observed, not­ inventory—were distressed.7 These proj­ ing areas that needed improvement. ects also often became breeding grounds for crime and drugs. These events had Why the HOPE VI serious implications for the individuals Approach Was Adopted and families that lived there and for the communities that surrounded them. Since it was authorized in 1937, public housing has grown to the point where it now provides low-cost shelter to 1.4 million needy households. The great majority of these projects are neither large nor distressed. In accordance with HUD mandates, most provide decent, safe, and sanitary housing. About one- third of all public housing units nation- ally are in one- and two-story structures (including some scattered-site single- Holly Park, Seattle, before revitalization. NewHolly, Seattle, after HOPE VI revitalization.

5 Connie H. Casey, Characteristics of HUD-Assisted Renters and Their Units in 1989. Washington, DC: Office of Policy Development and Research, U.S. Department of Housing and Urban Development, 1992. 6 Public Housing that Works: The Transformation of America’s Public Housing. Washington, DC: U.S. Department of Housing and Urban Development, 1996. 7 The Final Report of the National Commission on Severely Distressed Public Housing: A Report to Congress and the Secretar y of Housing and Urban Development. Washington, DC, August 1992.

Chapter 1 3 HOPE VI: Community Building Makes a Difference

operating costs. Additional federal fund­ ■ High unemployment and limited ing was required to bridge this gap, opportunities for the meaningful while maintenance and repair costs were employment of residents. increasing with the aging of the stock. ■ Programs designed to address dis­ Under these circumstances, the con- tressed conditions with too little strained federal budgets of the 1980s funding, too late. put considerable pressure on housing authority finances, frequently resulting ■ Programs designed to assist resi­ in physical deterioration in many proj­ dents of public housing paradoxi­ Public housing tutoring programs, such as this one in Seattle, ects. Ineffective local management some- cally providing disincentives to help immigrant children work on their English. times compounded financial problems. self-sufficiency. To be fair, however, it should be remem­ ■ Families living in physical condi­ the following questions: What kinds bered that the lawless, uncontrolled tions deteriorated to such an extent of changes has this program accom­ environments of the worst projects made that the housing was a danger to plished? What is the significance of sound operations difficult or impossible, their health and safety. these changes? What can we lear n from even for the most skilled managers. The the nation’s experiment with HOPE VI as one-for-one replacement rule—in force The commission recognized these prob­ we continue to debate housing and com­ since the early 1970s—forbids any dem­ lems as urgent and recommended a vari­ munity development policy? This work olition that would result in a reduction ety of reforms for congressional review examines the differences that the sup­ in the number of public housing units, and action. These included eliminating portive service side of the HOPE VI making it very costly and difficult to unfit living conditions, revising laws and program is making: demolish the worst projects even when regulations to promote income mixing in ■ …within the HOPE VI communities. the local housing authorities wanted to public housing developments, adjusting do so. The demolition itself would have the public housing operating subsidy to ■ …in the lives of individuals and been affordable, but funding to develop reflect the needs of severely distressed families who live in the HOPE VI replacement units was rarely available. projects, providing increased funding for developments. supportive services, creating a national ■ …in the larger communities where system to coordinate services that enable the developments are located. The National Commission on residents to become self-sufficient, devis­ Severely Distressed Public ing a system to require housing authori­ ■ …in the way that housing authori­ Housing ties to solicit resident input, promoting ties do business. economic development opportunities for As social and physical conditions wors­ The answers from our site visits are out- residents, establishing a model planning ened, Congress appointed the National lined in chapter 2. The remainder of process, encouraging housing authorities Commission on Severely Distressed this chapter briefly highlights some key to pursue private and nonprofit manage­ Public Housing in 1989 to find ways to observations of changes—themes that ment options, and developing a new address the issue. Over 18 months the will be revisited at greater length in the system to appraise the performance of commission visited public housing proj­ site profiles in chapter 2, the lessons housing organizations.8 ects in 25 cities (where the members learned in chapter 3, and the best prac­ interviewed residents, boards, housing tice examples in the appendix. authority staff, and housing experts) and Effects of HOPE VI on held a series of public hearings to gather additional evidence. Its report identified Lives, Neighborhoods, Change in the HOPE VI five core problems: and Institutions Communities ■ Residents fearful of moving about in Because HOPE VI was intended to Building new community institutions. their own homes and communities demonstrate that major changes could HOPE VI rebuilding plans, as discussed because of the high incidence of be made in public housing and in the in this book, did not call for building crime. lives of its residents, it is fair to pose housing alone. Along with the revitalized

8 Drawn from a summary analysis in Abt Associates, Inc. An Historical and Baseline Assessment of HOPE VI: V olume 6, Cross-Site Report. Washington, DC: U.S. Department of Housing and Urban Development, August 1996.

4 Chapter 1 HOPE VI: Community Building Makes a Difference

the presence of drugs and violence that rounds it, will provide Centennial Place’s had controlled the public areas of these public housing children with the aca­ public housing projects prior to HOPE demic base to do well in middle school VI. “You see people sitting on their and high school. In the natural course of porches now,” comments Sharon things, some of these children will be in Harrison-Brown of the Oakland Housing a position to attend Georgia Tech. Authority. “It’s a regular community now. In Los Angeles a coalition of community A poor one, but a regular community.” organizations and trade unions is train­ The new institutions developing in ing youth from the Pico Aliso and Aliso HOPE VI communities take many forms: Village public housing developments in Greater Baltimore Medical Center’s the construction trades. The job-training clinic, located just across the street and entrepreneurial programs, computer from Pleasant View Gardens; Soweto labs, and links with local colleges evi­

Residents take pride in landscaping around revitalized buildings Academy, an afterschool program in the dent in other sites further demonstrate in Oakland’s Lockwood Gardens. Walsh Homes in Newark, New Jersey; these new opportunity structures. the resident-created Homeboys housing, the HOPE VI sites also con­ Industries that is creating jobs for youth Changing Lives structed new community centers to in the Pico Aliso and Aliso V illage public house and more closely coordinate the housing developments in Los Angeles; Reducing the isolation of residents. many supportive services that help make the Neighborhood Equity Fund, a small The multipurpose centers in the rebuilt a working lifestyle achievable for those community foundation for the Santa HOPE VI communities also link the formerly dependent on welfare. New Rosa area in Tucson, Arizona; the HOPE VI site with the neighborhood multiservice centers that house services Orquestra Sinfonica Juvenil in San Juan, that surrounds it. Often, the multipur­ such as childcare, afterschool programs, Puerto Rico, which uses musical training pose centers are placed strategically on computer labs, employment services, to bring together children from the the edge of the HOPE VI development training, recreation, and healthcare are Manuel A. Perez development with a so that nonresidents can easily walk in common at HOPE VI sites. Such br oadly second public housing development to use the services, facilitating interac­ conceived centers include the Quigg where intergroup rivalry and tension tion between residents and the larger Newton Community Learning Center had previously characterized their community. People from all over the city in Denver; the Family Self-Sufficiency relationship. use the recreation center at the revital­ Center in the Crozer-Keystone Health ized Kennedy Brothers HOPE VI devel­ Building new opportunity structures. Center in Chester, Pennsylvania; and opment in El Paso. The childcare center The Centennial Place Elementary School many more. These new community in Baltimore’s Pleasant View Gardens is in Atlanta provides a striking example of institutions also supplied meeting the largest in the city, and two-thirds of a change in opportunity structure in a space for the resident council and the children it serves come from outside HOPE VI site. Community leaders had other groups from the development the HOPE VI development. Community long pointed out that, although the and often for neighborhood groups. groups come to take advantage of the Techwood Homes project was situated convenient meeting space in Rosewind The rebuilt Centennial Place in Atlanta, across the street from the Georgia in Columbus. In Atlanta the Centennial Rosewind in Columbus, and Pleasant Institute of Technology, not one child Place Elementary School, located onsite, View Gardens in Baltimore have new from the public housing project had is a technology-oriented magnet school police substations onsite or nearby. In ever gone to Georgia Tech. Then, an that draws children of families from all Oakland’s Lockwood Gardens, a com­ unprecedented partnership between income groups. The fact that neighbor- munity-policing program took several the housing authority and the Atlanta hood residents now come to the once- years to patiently persuade residents— public schools—with Georgia Tech fac­ shunned public housing development who were previously under the thumb ulty guiding curriculum development— represents an important change—a of the drug lords dominating the devel­ created an outstanding technology- significant reduction in the historic iso­ opment—to cooperate with law enforce­ oriented magnet school. This elementary lation and negative stigma attached to ment. These new community-policing school, in the context of the new HOPE public housing and its residents. arrangements have dramatically reduced VI mixed-income community that sur­

Chapter 1 5 HOPE VI: Community Building Makes a Difference

HOPE VI programs forge links between the “Wall of Work.” This wall-sized glass An assessment process in Seattle’s Holly residents and community resources in cabinet of the sort used to display sports Park in 1997 found that about two- many ways. Many HOPE VI programs trophies holds various photographs: a thirds of the 392 residents were unem­ have developed partnerships with woman at a desk, a man wielding a ployed. By December 1997, 91 residents employers around the city. In Chicago hammer at a construction site, a woman had started to work. A year later 66 the Walgreens retail store chain has a standing in front of a school bus. These were still working—two-thirds of those special program that trains HOPE VI are portraits of Hillside residents, taken in full-time permanent positions. Special residents in several cities in retail service a week or two into their new jobs—for training making use of English as a sec­ and store management. Several colleges many of them, their first real jobs. The ond language techniques enabled six and universities have become communi­ display makes tangible and solidifies immigrant residents to open onsite ty partners with HOPE VI communities: the sort of change in values that the childcare businesses. Delaware County Community College, HOPE VI program is fostering. Its ever- Baltimore City Community College, increasing display of photographs of Creating Change in the Pima Community College in Tucson, friends and neighbors celebrates the the Community College of Denver, the victories of individual residents in Larger Community Metropolitan State College of Denver, their progress toward self-sufficiency. Using HOPE VI to leverage community- Bloomfield College in New Jersey, Bridging to self-sufficiency. HOPE VI wide improvement. Before their revitaliza­ South Seattle Community College, implementation occurred in the context tion, HOPE VI sites were neighborhood Milwaukee Area Technical College, of welfare reform. The national Personal eyesores that contained concentrations El Paso Community College, Georgia Responsibility and Work Opportunity of extreme poverty and functioned as Tech, Swarthmore College, and Widener Reconciliation Act of 1996, which set havens for drugs and crime. HOPE VI College. The colleges offer computer lifetime limits of up to 5 years for a revitalization often became a catalyst for training, job-readiness skills, entrepre­ person of working age to receive welfare, change in the whole area. neurial business skills, and preparation changed the old welfare system. Oper­ In Columbus, for instance, the housing for the GED and College Board tests. ating in this new environment, housing authority chose to take not only the In Seattle the Children’s Art Museum authorities placed a great deal of empha­ HOPE VI community of Windsor operates an onsite arts program for the sis on overcoming obstacles to work and Terrace, but also the entire surrounding children of NewHolly. placing residents in employment—many neighborhood of South Linden as its Strengthening community norms that with impressive results. investment area. The housing authority value work. Visitors entering the new In Milwaukee between 1995 and 1998, placed its new headquarters in the near- multipurpose center at Milwaukee’s the percentage of long-term Hillside by dilapidated and underused Four Hillside Terrace come face-to-face with Terrace families with some level of ear n­ Corners business district. This decision ings rose from 27 percent to 69 percent. leveraged a city commitment to build a During the same period, the average new neighborhood transit center, fire annual income of long-term residents station, and police station in Four with earnings rose from $9,353 to Corners. This in turn caused Akzo/ $12,346 per year. Nobel, a coatings factory adjacent to the public housing development, to remain At Lafayette Courts in Baltimore, family in the neighborhood rather than relocate incomes averaged $6,099 in 1993 and to the suburbs. The company invested only 14 percent had any earned income. $32 million in refurbishing the plant Welfare dependency was the norm. By and encouraged its employees to volun­ March 1999 only about one-third of teer in the neighborhood school. the 152 Lafayette Court families who returned to Pleasant View Gardens were In El Paso the HOPE VI coor dinator and still receiving public assistance. Family AmeriCorps*VISTA volunteers worked incomes now average $8,641 and 26 with the community to apply to have Residents vote for members of Rosewind Resident Council, an percent of household heads are wage the area designated a federal Empow­ active partner in HOPE VI. earners. erment Zone (EZ). In Seattle private

6 Chapter 1 HOPE VI: Community Building Makes a Difference

developers put up new market-rate third-party agency, The NOAH Group, to prepare public housing residents for homes across the street from revitalized to oversee the provision of HOPE VI careers in the skilled trades. Colleges NewHolly. Oakland, Atlanta, El Paso, supportive services. At Flag Courts, the and universities—from the Milwaukee and Baltimore all report that new busi­ supportive services are provided through Area Technical College to South Seattle nesses are being established in the vicin­ a joint venture between the East Harbor Community College to Georgia Tech— ity of HOPE VI communities. Village Center, the EZ managing organi­ are working with the HOPE VI zation, and The NOAH Group. communities. Changing the Way the Housing Thinking outside the box. The experi­ Authority Does Business ence of working with the large resources and unusual freedom of HOPE VI has Changing the mission. Perhaps the most given housing authorities a taste of profound change observed in the HOPE working in an entrepreneurial fashion. VI sites is a reformulation of the mission The housing authority in Seattle decided of a housing authority. “Instead of the to act as its own HOPE VI developer, limited, well-defined mission we used to earning enough developer credits to have,” comments Dennis Guest, execu­ finance a significant number of scattered- tive director of the housing authority site public housing residences. In anoth­ in Columbus, “we now find ourselves er nontraditional move, Seattle has set responsible for at least coordinating up a 501(c)(3) organization to support everything that touches the lives of the NewHolly Campus of Learners pro- our residents.” gram after the HUD grant ends and has In Seattle the housing authority formally Residents learn construction skills through HOPE VI rebuilding begun fundraising from individuals, adopted a new mission statement in activities. foundations, and corporations. When 1997 “to enhance the Seattle community the Columbus Housing Authority failed by creating and sustaining decent, safe, In Seattle the NewHolly Campus to win a HOPE VI grant to r evitalize its and affordable living environments that of Learners program involves 10 Linton Gardens project, it sought instead foster stability and increase self-sufficiency providers—from the Private Industry to involve all groups that might take an for people with low incomes.” As a con- Council’s Career Development Center to interest in or could possibly benefit fr om sequence of this shift, comments Doris the Seattle public schools to the Most the redevelopment. The planning docu­ Koo, deputy executive director Abundant Garden Project—creating a ment for the project names more than of the Seattle Housing Authority, the multifaceted educational effort that is 30 community partners—businesses, authority begins to take on something continually fine-tuned through regular associations, nonprofit organizations, like the broad, community-oriented meetings among partners. and local government agencies. All these examples indicate a willingness to find mission of the turn-of-the-century The HOPE VI job-placement programs new ways to get things done. settlement house. work through partnerships with the More creative partnerships. Although business community. Businesses agree, This chapter has introduced the HOPE many housing authorities are accus­ often in exchange for tax credits, to give VI program and highlighted the themes tomed to contracting for services from low-income public housing residents a developed in more detail throughout outside service providers, the HOPE VI chance at a job. In Milwaukee the hous­ this book. Chapter 2 profiles seven partnerships tend to be more varied and ing authority invited Maximus, a for- HOPE VI developments—sites that have creative, involving more than a straight- profit employment services business that used the community-building approach forward two-party contract. specializes in moving clients off welfare, in such a way as to be consider ed exem­ to set up a branch office in the Hillside plary. Chapter 3 highlights lessons that In Baltimore, HOPE VI has led the hous­ Terrace community center. Lockwood may be learned from the HOPE VI expe­ ing authority to shift from the traditional Gardens in Oakland and Pleasant rience. The appendix highlights out- contract-for-service mode to more View Gardens in Baltimore set up standing individual programs from decentralized arrangements. There are preapprenticeship programs with the HOPE VI sites and other community- two models. At Lexington Terrace, the AFL’s carpenters and painters union, building efforts in public housing. ❖ housing authority has contracted with a

Chapter 1 7

HOPE VI: Community Building Makes a Difference

Chapter 2 Many Paths to Excellence— Profiles of Seven HOPE VI Sites

he HOPE VI program granted The profiles incorporate material from Thousing authorities a near- onsite interviews with housing authority unprecedented degree of control in executives and staff, residents, and reaching their program goals. The vari­ community partners. They capture the ous HOPE VI developments, achieved richness of the community-building through local planning, took on the experience in public housing. unique shapes of their varied contexts. The HOPE VI sites profiled here Each housing authority, drawing on its demonstrate varied and individualized own style and traditions, made choices approaches. In Seattle’s NewHolly, the from among the potential community Campus of Learners program became partners available in its own city, and the defining theme of the extensive com­ engaged the unique energies and ideas munity partnership that provided HOPE of each set of residents and neighbor- VI supportive services. The Columbus hood stakeholders. Metropolitan Housing Authority made This chapter contains profiles of the way the HOPE VI revitalization of Windsor the HOPE VI program expressed itself in Terrace a catalyst for the redevelopment seven public housing communities: of the surrounding Linden neighborhood. In Atlanta a new magnet elementar y ■ NewHolly (formerly Holly Park) school—created through a community in Seattle, Washington. partnership that included Georgia ■ Rosewind (formerly Windsor Tech—became the anchor for the new Terrace) in Columbus, Ohio. mixed-income community of Centennial Place. In Milwaukee the multiservice ■ Centennial Place (formerly Hillside Family Resources Center Techwood/Clark Howell Homes) became the locus for coordinating sup­ Milwaukee‘s Hillside Terrace is now a safe place for childr en in Atlanta, Georgia. to play. portive services to help families of ■ Hillside Terrace in Milwaukee, Hillside Terrace move from welfare to Wisconsin. work. In Oakland the HOPE VI pr ogram ■ Lockwood Gardens in Oakland, worked through community partner- California. ships and resident involvement to focus on halting the reign of drug lords in ■ Pleasant View Gardens (formerly Lockwood Gardens. In Baltimore’s Lafayette Courts) in Baltimore, Pleasant View Gardens the lesson of Maryland. HOPE VI lies not just in what support­ ■ Kennedy Brothers Memorial ive services are offered, but how—with Apartments in El Paso, Texas. better coordination and greater effective­ ness. In El Paso the housing authority

Chapter 2 9 HOPE VI: Community Building Makes a Difference

used the AmeriCorps*VISTA (Volunteers HOPE VI site. Such shifts changed and variety of heritages—mostly Southeast in Service to America) program with often weakened the constituency of the Asians, but also families from countries HOPE VI’s community services to chan­ resident leaders who had come to the such as Russia and Ethiopia. Holly Park’s nel residents of Kennedy Brothers fore when the HOPE VI project was get­ minority, immigrant, and refugee popu­ Memorial Apartments into key ting under way. lation spoke a dozen different lan­ leadership and service roles. Despite the tradeoffs made, the projects guages—from Amharic (spoken in Sometimes tradeoffs were made in described here are exemplary. They Ethiopia) to Vietnamese. Some of these response to outside pressures, such as show what the HOPE VI program can immigrant adults were unable to write the strict time limits of the welfar e-to- achieve through community building. in their native languages. Many residents work legislation in Wisconsin, the com­ had little education. Only 28 percent ing of the Olympics to Atlanta, or the had a high school education and 15 mayor of Baltimore’s citywide initiative percent had no formal education at all. to get public housing families out of In addition, Holly Park families were Two-thirds of the highrise buildings. Often, housing very poor. The 1993 median income authorities faced a choice between mov­ adult residents were was $7,012 for Holly Park families, ing along expeditiously in response to compared to $43,900 for Seattle such outside pressures, or slowly build­ unemployed. Almost overall. Welfare dependency was high. ing up, step by step, the grassr oots sup- half of the Holly Park Two-thirds of the adult residents were port and involvement of a broad range unemployed. Almost half of the Holly of residents. households received Park households received the majority Relocation of residents presented anoth­ the majority of their of their income from welfare—much higher than the average of 28 per cent for er tough issue. Some housing authorities income from welfare … made sincere efforts to follow all original public housing families across Seattle. residents who had to leave the HOPE VI Holly Park’s 102-acre site, with its site, whether temporarily or permanently, wooden cottages built in the 1940s for in advance of construction activity. defense workers, was impossible to Others did very little to stay in touch Seattle—Shifting maintain in the rainy climate of the with those who were relocated. Con­ Pacific Northwest. Divided in half by sequently, in those cities, residents who the Paradigm a right-of-way for high-tension wires, did not return after development slipped Holly Park was also separated from the through the cracks during what often surrounding community by a confusing turned out to be a long, drawn-out The Challenge internal street layout and its marked relocation process, extending for 2 years social stigma. These were the social and y the early 1990s, Holly Park in or more. physical conditions that challenged the South Seattle was the most dis­ B housing authority in 1995 when it Although all housing authorities made tressed public housing project operated received a $48 million HOPE VI grant use of Section 8 subsidies to r elocate by the Seattle Housing Authority (SHA). for physical revitalization and $1 million some families into private apartments, With its concentration of welfare- for supportive services for residents. there was rarely any strategic vision for dependent families and its reputation for the use of Section 8. The Section 8 pr o- crime and drug activity, Holly Park was gram tended to work with individual considered a problem neighborhood and NewHolly Today public housing families on a case-by- a negative influence on the low-income case basis, rather than reaching out to area that surrounded it. The following social and economic gains strengthen and develop supportive serv­ were found in NewHolly by the end of ices in the receiving communities. Holly Park also had the challenge of 1998, resulting from the HOPE VI being a multiethnic community. In all, approach: Another issue with built-in tradeoffs 35 percent of households were African ■ was the strategy of introducing a mixed- American, 3 percent were Hispanic, and The Private Industry Council (PIC) income community in order to reduce 15 percent were non-Hispanic whites. Career Development Center the concentration of poverty at the The remaining 47 percent reflected a assessed 392 residents in 1997

10 Chapter 2 HOPE VI: Community Building Makes a Difference

and found that 91 residents began on the larger community that surrounds working in a first job by the end of it is another shift in focus. As SHA Exec­ 1998, earning an average wage of utive Director Harry Thomas reflects, $8.47 per hour. “Although we originally focused on Holly Park, our thoughts and notions ■ Between 1997 and 1998 the Seattle have expanded to include the whole Public Schools Challenge Grant southeast side of the city.” program provided computer train­ ing to more than 113 Holly Park This shift in focus infused and ener gized residents of all ages. the Holly Park HOPE VI supportive Campus of Learners services, now located in remodeled units, service program, which came to be ■ Catholic Community Services’ will soon be housed in the community center to be built as part known as the Holly Park Campus of Youth Tutoring Program provided of the NewHolly construction program. Learners. Campus of Learners (COL) is 2,386 tutoring sessions. mixed-income development called the name by which HUD recognizes a ■ The number of books borrowed NewHolly is rising and is stimulat­ variety of unfunded housing authority from the Holly Park branch of the ing private housing development. educational initiatives. Seattle’s COL— Seattle Public Library tripled a multiagency collaboration drawing on between 1997 and 1998. ■ A new learning and family resource a variety of housing authority program center sits on the edge of the devel­ ■ In planning for the HOPE VI funds—has many goals. These include opment, offering to the entire com­ redevelopment and social service creating a service-rich environment munity access to a South Seattle program, the Holly Park Resident within public housing that promotes res­ Community College branch cam- Council broadened participation by ident self-sufficiency. This reverses the pus, a Seattle Public Schools tech­ simultaneously translating proceed­ isolation of public housing and its r esi­ nology lab, a Seattle public librar y, ings of resident meetings into as dents because they create ties with the a career development center, a day- many as six different Southeast nonprofit and business communities. care center, and a youth tutoring Asian and West African languages. Lifelong learning is fostered, and parents program, among other services. are involved with their children’s educa­ ■ A newly formed resident-owned tion. Before full rehabilitation was com­ moving company helped Holly Park How They Did It: Holly pleted, the SHA created a convenient residents with the relocation process. temporary campus by clustering several Park’s Campus of Learners ■ A dozen residents with modest converted mobile office units and other English proficiency trained as child- HOPE VI brought a new wave of think­ facilities around a semicircular drive, care workers in classes that featured ing into the Seattle Housing Authority to house different COL agencies. English as a second language. Six r es­ (SHA). One of the first housing authori­ Construction was completed on the idents are now operating their own ties to win a HOPE VI grant, the SHA new COL site in fall 1999. childcare businesses, while the others received $48 million in 1995 to tear The experience of working with the are employed in childcare centers. down and replace Holly Park. COL program under HOPE VI has start­ ■ Between 1996 and 1998 the inci­ Doris Koo, deputy director of the SHA, ed the housing agency along the path dence of serious crimes in Holly notes, “HOPE VI began to challenge toward a new paradigm: more reliance Park dropped from 568 to 350, some fundamental beliefs concerning the on community organizations to build the according to police statistics. The mission of the housing authority. Is our environment that links residents with number of residential burglaries mission that of owning and managing the resources they will use to attain self- declined from 120 to 45, thefts fell property—giving people a roof over their sufficiency and greater consciousness from 206 to 153, and car thefts heads? Or is it to provide shelter that is of the positive role that public housing dropped from 116 to 86. The num­ part of a healthy environment, within developments can play in the communi­ ber of aggravated assaults reported which families can prosper, dignity can ties that surround them. fell from 64 to 34. be restored, and children can aspire?” Several agencies work together to main­ ■ In the place of the old, pr oblem- Considering the effect of the transforma­ tain Holly Park’s COL. These organiza­ ridden Holly Park, an attractive, tion of a large public housing community tions include those specializing in

Chapter 2 11 HOPE VI: Community Building Makes a Difference

Exhibit 2.1

Partners in HOPE VI at NewHolly ■ The Seattle/King County Private Industry Council ■ Refugee Federation Service Center. This community- (PIC). PIC operates NewHolly’s Career Development based organization provides advocacy services for Center, offering job-search assistance, vocational and refugee families. basic skills testing, interview preparation, and transla­ ■ Friends of P-Patch. This gardening organization, tion assistance. PIC arranges for childcare and support­ operated by the Most Abundant Garden Project, helps ive services, coordinates Campus of Learners services, residents grow vegetables and flowers for sale and and maintains a calendar of events. personal use. ■ The Atlantic Street Family Center. This 80-year-old ■ Seattle Public Schools. Through a May 1, 1998, settlement house opened an onsite family center to of fer memorandum of agreement, the Seattle Public Schools parent education and family support, outreach to ado­ agreed to provide student data for participating lescents, family enrichment activities, as well as classes NewHolly families, to link NewHolly children with all in health, safety, nutrition, financial management, and available educational supports, to involve parents, to citizenship. It also organizes cultural celebrations and work with PIC’s Career Development Center to coordi­ “talking circles” where immigrants can practice to nate summer youth employment programs, and to work improve their English. with other agencies. The public schools also pr ovided ■ South Seattle Community College. The community the expertise to upgrade donated computers for an college operates a branch campus at NewHolly, offering onsite computer lab for adults and childr en. adult basic education, vocational skills training, com­ ■ Holly Park Community Council. This resident advo­ puter training, and high school equivalency classes. cacy and community mobilization organization provid­ ■ Child Care Resources. Child Care Resources, an advo­ ed youth services and a youth intervention specialist cacy and technical assistance organization, conducts for Cambodian youth, as well as pr oviding resident training for childcare workers and businesses, assesses relocation services. childcare needs and resources, and advises the housing ■ Catholic Community Services. Catholic Community authority on childcare issues and strategies. Services operates an onsite youth tutoring pr ogram. ■ Holly Park Library. The Holly Park Library, an onsite ■ Neighborhood House Early Head Start, Emerald public library, provides a variety of afterschool activities, City Early Childhood Development Center, and such as help with homework and r eading. The library, resident-owned childcare facilities. These are some which is open until 9 p.m., thr ee evenings per week, of the various childcare facilities that support working also offers computers for word processing and families at NewHolly. Internet access. ■ Seattle Children’s Museum. Trained staff from the Seattle Children’s Museum operate an afterschool arts enrichment program at NewHolly. employment training, education, the and inventive. One example is the assembly, and childcare. Teachers offer arts, library services, and gardening English as a second language (ESL) group classes and, if necessary, accompa­ (exhibit 2.1). training that focuses on building the ny trainees to their job sites to help them vocabulary needed for a specific job. identify the vocabulary they must master. This kind of training is often a compo­ How the Collaboration Works The joint agency training in childcare nent of PIC job-training efforts. Trainees work is a striking illustration of the Each organization within the Campus of are coached on an as-needed basis in COL’s collaborative style. For example, Learners contributes its special expertise, the specialized vocabulary of trades Child Care Resources recently held a but the collaboration is unusually close as diverse as carpentry, electronics

12 Chapter 2 HOPE VI: Community Building Makes a Difference

for the center’s help to develop career goals and seek employment. By December 1997, 91 residents had entered employment with a first job and 75 of them had found their jobs through the center. By December 1998, of the 91 employed, 66 were still work­ ing. Of those, the majority (44) wer e Children of immigrant families use lear ning resources in the Holly Park branch of the Seattle Public Library . working in full-time permanent posi­ tions, 8 were in temporary work, and 14 4-month class that trained a dozen r esi­ ■ The Learning Center will house were in permanent part-time positions. dents as childcare workers. Staff from PIC’s Career Development Center, The average wage across the board was Child Care Resources presented the the South Seattle Community $8.47 per hour. technical material in Saturday classes, College branch campus, the Seattle covering such topics as early child Public Schools technology lab, a Encouraging Earning development, appropriate curriculum, small business development center, legal issues, and reporting requirements. and Catholic Community Services’ Of the 117 residents who were employed A professional ESL teacher, hired by youth tutoring program. at the time of the initial pr ogram assess­ PIC, attended these classes and noted ment, 82 percent were still working at ■ The Family Resource Center will the job-related words and phrases. the same jobs as of December 1998. The house the Atlantic Street Center’s The ESL teacher then took charge of Career Development Center helped 11 family and youth development the classes on Monday and Wednesday residents find new jobs, and 3 r esidents programs; the Seattle Children’s nights to work on vocabulary. Vocational found new jobs on their own. Twenty- Museum’s afterschool arts program; ESL training uses pictures, role playing, one residents were not employed at the a garden program; the homeowner- and props—going from the concrete to time of the evaluation study, but were ship program; office space for COL, the abstract—in order to convey the cul­ working with PIC on language skills, Head Start, and Emerald City Child tural concepts behind the words. For citizenship, job searches, and other pre- Care; a multipurpose meeting hall; example, the teacher might build on employment activities. and the Community Living Room, the idea of providing specific toys and an informal gathering space. Entrepreneurial activities were encour­ games to get across the general concept ■ aged. In addition to the 6 r esidents who of providing appropriate educational A third, smaller building will house completed the Child Care Resources activities for young children. leasing, purchasing, and mainte­ training and opened their own onsite nance services for residents. When the classes ended, PIC placed the childcare businesses, 20 residents partici­ trained workers in jobs. Using a similar pated in a community-supported agricul­ collaborative approach, PIC offered Changing Lives ture project, Friends of P-Patch, where vocational English classes that upgraded they grew and sold produce from their The Holly Park Campus of Lear ners has the skills of interested childcare workers, NewHolly gardens to local subscribers. helped many residents make changes in allowing them to become owners of their lives since it opened in June 1997. their own home childcare businesses. A December 1998 evaluation by Business Encouraging Learning Weekly interagency coordination meet­ Government Community Connections, a The COL is about learning as well as ings held at a nearby public librar y keep Seattle-based consulting firm, reports sig­ earning. More than 113 children, youth, the staff of participating organizations nificant changes. PIC’s Career Develop­ and adults received computer training aware of other COL coalition members’ ment Center has assessed more than 392 through the Seattle Public Schools activities. Physical proximity fosters residents (assessment is now required by Challenge Grant Program from 1997 to informal interaction and collaboration. a NewHolly lease addendum). When 1998. Catholic Community Services’ In fall 1999 the COL moved into a new assessments began, 224 residents (66 per- Youth Tutoring Program provided facility located at the main entrance of cent) were unemployed. Approximately 2,386 individual tutoring sessions, NewHolly. The new facility is designed two-thirds of the assessed residents asked to encourage partners to work together:

Chapter 2 13 HOPE VI: Community Building Makes a Difference

and 84 percent of participants reported Resident Organization and the community council and the housing improvements in their grades and study Leadership authority to the Seattle Office of Civil skills. The number of books circulated Rights. The appeal was denied in by the Holly Park branch of the Seattle The Holly Park Community Council, the May 1999. The Equal Employment Public Library tripled. resident organization, has been actively Opportunities Commission reviewed involved in HOPE VI. An active partner the claim and, in June 1999, found no An important function of the Campus of with the housing authority, the council reasonable cause. Although the discrimi­ Learners is dealing with the low educa­ provides continuous input on programs nation charges were not found to have tion levels of many NewHolly families. as they are implemented. The council’s a basis in fact, they embarrassed the As many as 15 percent of the residents long-term president, Doris Morgan, housing authority and politicized the assessed by PIC’s Career Development helped build resident support for the atmosphere of resident participation. Center in 1997 were found to have no original HOPE VI application to HUD. Doris Morgan remains an honored formal education at all. Twenty-eight However, the transition to a mixed- and respected resident leader. She was percent had the equivalent of a grade income community created significant the recipient of the Jefferson Award 12 education. Only 10 percent had any tension among ethnic groups in Holly and the Nordstrom Diversity Award. postsecondary education. Seventeen Park. For example, in May 1998 a gr oup Jacqueline Kennedy Onassis and Senator students participated in a two-semester of East African residents made formal Robert Taft, Jr., founded the Jefferson basic skills class at the Career Devel­ complaints of employment discrimina­ Award, envisioned as a Nobel Prize for opment Center. By December 1998 tion by the council on its contract with public service. one student had obtained a GED, two the housing authority, which found no seemed likely to attain their degrees dur­ reasonable claim in October 1998. The Many NewHolly families have active ing 1999, and the others had impr oved group then brought its complaint against community ties in ethnic organizations their basic skills (exhibit 2.2). and churches in the Greater Southeast Seattle neighborhood. Since only tradi­ tional public housing residents can par­ Exhibit 2.2 ticipate in the Holly Park Community Council, its influence seems to be lessening, following the creation of Immigrant Begins Her Own Childcare Business NewHolly as a mixed-income communi­ Thanks to the training provided by PIC and Child Care Resources, six Holly ty. Although public housing families Park residents are operating their own successful home childcar e businesses. are the majority in NewHolly, people One of these residents is Sen Doan, who emigrated fr om Vietnam with three tend not to identify as such. In 1999 young sons about 5 years ago to join her husband and eldest son who wer e the housing authority began a series of already in Seattle. Sen learned English and became an outstanding childcar e facilitated meetings that resulted in the worker. Sen’s supervisor shared her achievements with Child Care Resources, development of a new, block-level which offered Sen the chance to enter training in 1998 so that she could start resident organizational network. These a childcare business of her own. meetings have eased some of the tension in the community. In summer 1998 Sen hung up her business sign, made business car ds, and talked to friends and neighbors. By fall, her licensed home childcar e business was filled to capacity, with a waiting list. One contribution to this success, Creating Change in the Sen believes, is the support she r eceived through the Holly Park Child Care Larger Community Providers Information and Support Group, a project of the Holly Park Family Center. The ongoing training, encouragement, and opportunities to talk with The old Holly Park was a pr oblem other business owners are essential. “My business is hard. It’s a lot of stress,” neighborhood within a low-income area comments Sen. “It’s good to have people help you at the beginning so you can of Seattle. Today, it is a neighborhood know what to do.” asset. The first redeveloped blocks of Sen’s dream for her family is coming closer. They plan to purchase a home in Holly Park, now called NewHolly, form the NewHolly redevelopment. They look forward to planting their roots in a pleasant neighborhood of two-story, their new country as proud homeowners and business owners. single-family houses and duplexes. The HOPE VI plan called for demolishing all

14 Chapter 2 HOPE VI: Community Building Makes a Difference

893 original units and replacing them ways of using community resources and with 1,200 new units. The revitalized working through collaborative arrange­ NewHolly will include garden apart­ ments. The housing authority was able ments and single-family homes—a to reduce density in its family housing mixed-income community with 400 and introduce a mixed-income commu­ rental units allocated to very low-income nity at NewHolly, while leveraging dif­ households that would qualify for public ferent kinds of resources to increase the housing, 400 tax-credit rental units for total number of low-income units avail- low-income households, and 400 afford- able in the city. able homeownership units. To achieve this win-win solution, the The winding streets that isolated the housing authority developed a unique development are being rerouted and partnership with South Seattle’s nonprof­ integrated into the surrounding neigh­ it community development corporations. borhood. The $48 million HOPE VI There were three primary partners—the investment was leveraged by more than Low-Income Housing Institute, the $160 million in local funding from the Lutheran Alliance to Create Housing, state, the city of Seattle, Fannie Mae, and the Plymouth Housing Group Seafirst/Bank of America, Key Bank, the (which is part of the Church of Christ Federal Home Loan Bank, and others. network). The housing authority acts as A light-rail system—proposed to run its own HOPE VI developer, earning Holly Park children create masks and gain confidence through from Sea-Tac International Airport fees, that it then uses to help finance ongoing afterschool art classes taught by Seattle Childr en’s through Seattle—will stop at the cor ner affordable housing projects undertaken Museum staff. of Martin Luther King, Jr. Way and by these community groups. The hous­ Othello Street, adjacent to NewHolly, ing authority subsidizes a portion of become a force to encourage neighbor- stimulating commercial development units, which then serve the same income hood economic development. In in the neighborhood. group as public housing. response to the HOPE VI redevelop­ ment, new commercially built homes Changes in the housing authority’s are springing up across the street from Housing On- and Offsite relationship with the neighborhood NewHolly. In collaboration with the came about partly in response to feed- Of the 893 households in the old Holly housing authority, the surrounding back on the old ways in which the Park, 393 decided to move to NewHolly. community has formed a planning housing authority did business. While Of the residents who did not return, 226 group called MLK@Holly Neighbor- meeting with neighborhood organiza­ families moved to other public housing, hood Planning Association to take on tions during the HOPE VI planning 242 went to Section 8 rental housing, 16 the broader role of integrating the HOPE process, staff heard complaints that the moved to homeownership offsite, and VI plan into the existing fabric of the housing authority did not work with 16 moved outside the system without community. The housing authority neighborhood groups and seemed to help from the housing authority. also works with the Seattle Police have little concern for the effects of its Department, the Holly Park Community In designing NewHolly as a mixed- developments on the surrounding neigh­ Council, the Holly Park Merchants, income community, the housing authori­ borhoods. The SHA had a limited sense Friends of Othello Park, and the Rainier ty took advantage of the recent easing of of mission, which tended to keep the Chamber of Commerce to promote pub­ the federal one-for-one replacement rule housing authority’s role primarily custo­ lic safety. NewHolly homebuyers will for public housing units. However, the dial, rather than expanding into its most also form a homeowners association to city of Seattle, as a condition of its par­ proactive role of helping residents move build additional links with the existing ticipation in HOPE VI, stipulated that no from dependency to self-sufficiency. community. net units be lost as a r esult of the con- Through its attractive design, the mixed- version. The solution, arrived at after NewHolly has become a desirable neigh­ income composition of its residents, intense negotiation and high creativity bor in South Seattle. The $48 million opportunities for homeownership, and from all sides, is an example of how the HOPE VI investment, plus more than the new COL facilities, NewHolly has housing authority has developed new $160 million in local funding and

Chapter 2 15 HOPE VI: Community Building Makes a Difference

planned investment, is spurring private Reconsidering the Settlement family and community. An employment investment in the area. The new COL House Model services agency might seek childcare facilities, located at the main entrance to slots to enable its clients to go to work, NewHolly, seem well-positioned to draw A key partner in the Campus of Lear ners but would have no mandate to cr eate, neighborhood families and break down partnership is the Atlantic Street Center, for example, any of the culturally appr o­ barriers between public housing and which is modeled on Chicago’s Hull priate childcare resources they are miss­ surrounding community residents. House and New York’s Henry Street ing. However, the idea of creating new Settlement House. The settlement house resources might arise quite naturally in model holds key components to the the context of the Campus of Lear ners Changing the Housing approach that the Seattle Housing everyday problemsolving interactions Authority’s Way of Doing Authority is developing for NewHolly. among the staff of different agencies. Business Says Koo, “We are now creating a collab­ orative—a group of people whose charge Although long known as capable and “We are now creating is not to say, ‘My client, your client,’ but progressive, the Seattle Housing Authority to consider ‘our clients.’ A group that operated somewhat independently of the a collaborative—a group can say, for example, ‘So-and-so’s kid larger community in the past. SHA staf f of people whose charge just dropped out of school—let’s deal tended to see the organization as respon­ with the family situation.’” sible to government and its residents, is not to say, ‘My client, but not as a player in the community as Bringing in new agencies also opens up a whole. Although long engaged in part­ your client,’ but to new networks, which is another plus nerships with community agencies to consider ‘our clients.‘” for the public housing authority. South deliver human services to residents, the Seattle Community College, for example, housing authority tended to seek out has relationships with educational organizations with specific expertise to institutions such as the University of Traditionally, settlement houses devel­ remedy disparate, separately defined res­ Washington and Seattle University, oped to help groups of immigrants make ident deficiencies, such as inadequate as well as with business and civic their way into U.S. society and viewed job skills, poor English skills, or lack of groups such as the Seattle Chamber of the individual and family in the context reliable childcare resources. Through the Commerce and the Rainier Chamber of of the community. The settlement house COL, however, the housing authority Commerce. These new, more extensive workers followed an enabling model— has moved to a new kind of partner­ networks have the potential to link linking individuals and families to com­ ship—a collaborative, community- NewHolly residents to a wider world and munity support structures that would resource, community-building model enrich the program for years to come. enable them to achieve their goals. As that has much in common with the tra­ with today’s community-building model, ditional settlement house approach. the settlement houses worked to cham- Developing a New Mission The Campus of Learners concept pion community norms, such as hard Statement work, family, honesty, and the value of involved building a new collaborative. HOPE VI challenged some fundamental education. The settlement house model, But relying on outside agencies to deliv­ beliefs about the basic role of the hous­ in its reliance on community resources, er housing authority services meant ing authority, how to work with its is predominantly collaborative because it handing over as much as 20 per cent of partners, and its relation to the commu­ is dependent on community resources. the HOPE VI grant to a collaborative nity. Even the organization’s formal mis­ whose members are not part of the The more traditional approach—with sion statement changed. The former housing authority—who may even have one agency defining its mission solely as mission statement read as follows: “The criticized the housing authority at times. child advocacy for children and another mission of the Seattle Housing Authority solely as advocacy for women, and so is to provide, within a financially sound on—can lead to a fragmented, even framework, decent, safe, and affordable adversarial approach to problems within housing for low-income persons in an

16 Chapter 2 HOPE VI: Community Building Makes a Difference environment that enables residents to Columbus— landscaping, and trash facilities—were live with dignity.” The new mission in serious disrepair. The building of statement states: “The mission of the A Catalyst for Windsor Terrace concentrated low- Seattle Housing Authority is to enhance income people in the area, and the the Seattle community by creating and Neighborhood construction of interstate highways sustaining decent, safe, and affordable to the west, east, and south further living environments that foster stability Revitalization isolated them. and increase self-sufficiency for people In the early 1990s nearly half (48 with low incomes.”1 percent) of the commercial sites in The new statement retains the housing The Challenge Linden’s once-thriving business district authority’s historic concern for the quali­ n the early 1990s, Windsor Terrace lay vacant. Six percent of residential ty of housing provided. It also extends Ihad a reputation as the worst area for sites were vacant. The Linden area ZIP the agency’s mission from building and welfare dependency, crime, and drugs in Code—43211—had more public assis­ maintaining physical structures to creat­ the city of Columbus. It was a primar y tance recipients than any other ZIP Code ing living environments—a concept that contributor to the high crime rates in in the city. According to the 1990 cen­ encompasses the psychological, social, the run-down, low-income area of sus, 60 percent of Linden households educational, and cultural environments, Greater Linden that surrounded it. The were poor. Median household income as well as ties to the neighbor hood and sound of gunfire after dark punctuated was only $9,091. With one of the the city. The new mission statement also the night air on a regular basis. fastest-growing job markets in Ohio, assumes direct responsibility for helping Columbus had the classic problem of The Linden community surrounding residents achieve self-sufficiency—the the poor being isolated from consider- Windsor Terrace was also in trouble. underlying goal of the COL program able opportunity in the wider community. Originally settled in the late 1800s and HOPE VI. It seemed impossible for local community through land grants to Civil War veter­ In a striking departure from past prac­ ans, Linden was annexed to the city of tice, the Seattle Housing Authority has Columbus in 1921. For several decades set up a 501(c)(3) nonprofit organiza­ it remained a largely white, working- tion to raise money for COL activities class, residential community with a thriv­ after the HOPE VI grant ends. The total ing commercial corridor on Cleveland development cost for the COL is esti­ Avenue, a prominent north-south artery. mated at $9.1 million. At the start of the In the 1950s, however, new suburban capital campaign in February 1999, the shopping centers to the north began to housing authority already had $5 mil- sap its economic vitality and decades of lion in hand—$1,915,000 from HOPE disinvestment followed. Storefront busi­ The rebuilt Rosewind features variations in design, parking spaces, and play lots. VI, $2,835,000 from the housing nesses closed their doors, property values authority’s developer fees, and $250,000 sank, and crime increased. leaders to turn Windsor Terrace around from the city of Seattle. The housing Built in 1959 on Columbus’ near north- when only 6 percent of household heads authority hopes to raise $4.1 million in east side, Windsor Terrace contained were gainfully employed. Nonetheless, new funding—by October 1999, it had 442 low-rise row units, spread across transformed as the new Rosewind, generated more than $2.1 million from 40 acres. By the early 1990s, despite Windsor Terrace was to become the existing sources. By establishing an inde­ the efforts of the Columbus Metropolitan catalyst for revitalization of the Greater pendent funding stream, the housing Housing Authority (CMHA), age, disre­ Linden community. authority hopes to institutionalize the pair, and vandalism had taken their COL concept and ensure its place as a toll. Windsor Terrace’s infrastructure— permanent part of NewHolly. sidewalks, streets, parking, curbing,

1Adopted September 15, 1997.

Chapter 2 17 HOPE VI: Community Building Makes a Difference

Rosewind Today Profitmakers, graduated 22 South and a broad coalition of community Linden residents, creating 7 new groups to revitalize the Linden commu­ Rosewind, the renamed Windsor businesses with 17 new jobs. nity. The housing authority’s vision for Terrace, can boast these dramatic Windsor Terrace was broad and contex­ ■ In 1998 CMHA’s Block-by-Block improvements: tual from the start. ■ Community Leadership Grants pro- Gang activity has diminished and gram, funded by HOPE VI, awarded After receiving an additional $1 million crime is down. Police reports show six grants worth $26,000. Community-Building Grant from HUD that since 1993 car thefts fell by 55 in 1996, the housing authority agreed to ■ Rosewind is now an attractive, percent, burglary fell by 16 percent, extend the community-building target mixed-income development of low- and aggravated assault dropped by area well beyond the boundaries of rise brick buildings containing 230 60 percent. Rosewind—the rebuilt Windsor Terrace’s units, approximately half its former ■ new name. The housing authority stipu­ By early 1999, 160 of the 230 family density. A new 42,000-square-foot lated that the target area extend to the household heads were wage earners. administration building houses entire community revitalization area des­ ■ The nearby Four Corners business employment services, a daycare pro- ignated by the city of Columbus, con­ district, refurbished by the city with gram, an afterschool program, and taining approximately 1,200 households new streetlights, crosswalks, trees, community meeting rooms. and an estimated population of 4,000, and trash receptacles, is breaking with a 1990 average annual income of ground on $11.5 million in planned How They Did It: HOPE $13,800 per household and a poverty investments, including a new rate of 56 percent. CMHA headquarters building, a VI Revitalization as a bus station, a fire station, and a Neighborhood Catalyst In 1996 the housing authority began to police substation. investigate the feasibility of building a To the CMHA, the $41 million HUD new $3.5 million headquarters building ■ As of the beginning of 1999, HOPE HOPE VI grant, received in 1994 to at Four Corners, a run-down, underused VI had leveraged $14.5 million in rebuild the dilapidated, 40 acre Windsor commercial area near Windsor Terrace. city infrastructure investments for Terrace project, meant more than just A $2.5 million housing authority main­ the Linden area. the transformation of a troubled public tenance facility was also planned nearby. ■ Akzo/Nobel Coatings, Inc., a local housing project. The goal was the revi­ But the housing authority made these manufacturer, opted to remain in its talization of the Greater Linden area moves contingent on the city making location adjacent to Rosewind and and, in particular, the Four Corners substantial additional investments of its has made $32 million of improve­ business district on Cleveland Avenue own at Four Corners. ments in the plant. three blocks west of Windsor Terrace. Housing authority leadership believed “We chose a neighborhood that needed ■ Of the 41 new workers hired by that unless the local economy of the a lot of work and had somewhat high Rosewind’s developer, the Sherman Linden area improved, a rebuilt Windsor risk,” explained Dennis Guest, executive R. Smoot Company of Ohio, 13 Terrace would be a vulnerable oasis in a director of the Columbus Metropolitan were Windsor Terrace residents, desert of urban disinvestment. Although Housing Authority. Yet, the anticipated 3 came from other public housing, they believed in the potential of the public and private investments material­ 3 came from the Youthbuild pro- area, they were convinced that neither ized. Guest is confident that Rosewind gram, 8 came from Linden, and Windsor Terrace nor the Linden neigh­ was the initial investment that set it all 10 were low-income residents from borhood could make much progress in motion. “Rosewind was a catalyst for other parts of the city. Working in separately. Strengthening the economy the whole area. Without Rosewind, none partnership with Columbus Public of the larger area was a critical strategy, of this would have ever happened.” Schools Adult Education, Smoot if only to allow the public housing Revitalization of the Linden area was a trained 32 of those low-income development to retain the benefits of housing authority priority from the people, including 12 Windsor rebuilding. They decided to use housing beginning. It was also part of the Linden Terrace residents. authority resources, in addition to HOPE area’s understanding with HUD as it ■ A microenterprise ownership train­ VI funds, as economic leverage and to began its HOPE VI project. Nevertheless, ing program, called Risktakers and work with Windsor Terrace residents the tradeoff involved was the limited

18 Chapter 2 HOPE VI: Community Building Makes a Difference participation from public housing resi­ the public investment in Rosewind after Changing Lives dents. The housing authority adopted the 3-year funding cycle ends. Major a policy of extending its community- commitments by the housing authority Windsor Terrace is only a memory today. building activities to the Linden commu­ and the city led the way for a host of Rosewind, an attractive model HOPE VI nity and encouraged residents to work smaller initiatives in the Linden area. mixed-income development, occupies its through community organizations rather Faith-based and community groups as place. With 230 units—about half the than housing development organiza­ well as businesses have added to the former density—Rosewind includes a tions. Housing authority leadership con­ effort to revitalize Greater Linden, new 42,000-square-foot administration sidered it a long-term necessity to focus with programs that range from job building that houses the HOPE VI staf f, on the Linden area—even choosing to training and employment services to the resident council, and supportive invest its own resources and corporate housing, health, educational, and services such as infant-toddler childcare, presence in the neighborhood. In the recreational programs. Head Start, and an afterschool program. short term, however, this policy may In February 1999, 160 of Rosewind’s have hampered community building in family household heads were wage earn­ Rosewind itself. ers. As a reflection of this change, the The Four Corners initiative begun by average rent in the development, based the housing authority also includes a on a percentage of income, is approach­ $2.5 million Central Ohio Transit ing $200 per month, up from the former Authority neighborhood transit center, average of $130 per month. More Rose- a $1.2 million police substation, and wind families are employed than in the a new $1 million fire station, all on past, having received help from employ­ Cleveland Avenue. The transit building ment and supportive services to take Tiles painted by Rosewind children decorate the entry wall of advantage of the strong job market in will provide space for many services and the new community center. amenities that the neighborhood cur­ Columbus. However, as Cheryl Thomas, rently lacks: a daycare center, healthcare Encouraged by the new climate in the CMHA community-building facilitator, offices, an employment center, a coffee area, Akzo/Nobel Coatings, Inc., situated is quick to point out, many r esidents shop, and a laundromat. The city spent one block east of Rosewind, decided not must gain promotions above their entry- approximately $500,000 to make to move to the suburbs. Instead, the level positions in order to reach truly Cleveland Avenue a welcoming gateway Dutch-based producer of chemicals, self-sufficient salaries. into Linden from I-71, by installing new coatings, healthcare products, and fibers HOPE VI has changed the lives of pedestrian lights and trash receptacles, invested $32 million to expand and Windsor Terrace residents. Windsor painting crosswalks, and planting trees. modernize its Linden plant, receiving a Terrace had always been a “closely knit Including $1.5 million in Rosewind $1.4 million, 5-year tax abatement from community, but it was badly neglected,” infrastructure costs, $5 million on the city. As part of the remodeling according to Jacqueline Broadus. A long- Cleveland Avenue reconstruction, $1.5 project, the company shifted its truck time Windsor Terrace resident and presi­ million in Community Development delivery area to the back of the factor y dent of the Rosewind Resident Council Block Grant funds, and $833,000 in building, away from Rosewind and the throughout the HOPE VI development Urban Infrastructure Recovery funds, Windsor Academy, an alternative public period, Broadus now serves by mayoral the city of Columbus invested a total elementary school located on the block appointment on the housing authority of $14.5 million in South Linden. between Rosewind and the plant. board of directors. HOPE VI, she Company employees take an ongoing Although the housing authority used explains, “took away the stigma” of interest in the community, tutoring HOPE VI funds primarily for Rosewind living in Windsor Terrace. Windsor Academy children and even and its residents, the intent was to Former residents were permitted to turning out one Saturday to help erect coordinate the services and programs move to the new Rosewind if their r ent a large wooden climber, shaped like an developed with these funds to ser ve a payments were current, their house- old sailing ship, in the new playgr ound broader-based community-building pro- keeping met lease requirements, current at Rosewind. gram for South Linden residents. This police records showed no recent drug- dual approach was designed to protect related or criminal activity, and they

Chapter 2 19 HOPE VI: Community Building Makes a Difference

agreed to participate in the needs- ■ Forty residents were evicted due disincentive. These families, particularly assessment process and create an indi­ to nonpayment of rent and other those with children, did not want to face vidual development plan. lease violations during the 2-year a second major household move after relocation period. settling in a community. As in many other HOPE VI sites, Windsor Terrace was not fully occupied ■ Thirty-three residents are unac­ In spite of the fact that the housing at the beginning of HOPE VI. Of the counted for, and it is not clear authority offered prior residents oppor­ 359 residents who occupied units at the what has happened to them. tunities to return, the issues related to start of relocation prior to demolition, relocation were serious. For the most The CMHA administrators were well­ only 89 returned. Columbus’ experience part, a system for keeping in touch with intentioned, and they set forth a number of a below-25-percent resident return those residents who left the site was not of reasons why residents did not return. rate is mirrored in many sites through- in place, and contact with residents was For example, they claim that residents out the country. What happened to not consistent. It is now clear that r elo­ using Section 8 certificates or choosing those who did not return? Consider the cation policies that offer more support to relocate to other public housing prop­ following outcome in Columbus: to all residents are needed. This lesson erties did so for several reasons. Some learned is discussed further in chapter 3. ■ Eighty-nine residents chose perma­ residents had wanted to get out of public nent relocation using Section 8 housing to obtain rental housing in the certificates. private market. Others did not want to Crime participate in the community service ■ One hundred and eight residents The crime problem that made living in requirements as put forth by the r esident chose to be permanently relocated Windsor Terrace dangerous and stressful council. For many, the lengthy 3-year to other CMHA properties. has abated. One reason, according to construction period was a major staff, is that those most involved in crim­ inal activities were reluctant to comply with the employment assessments and Table 2.1 housekeeping inspections that were part of the new way of life at Rosewind. Crimes Reported in South Linden Area, “Crime is one thing we don’t worry 1993 and 1998 about now,” remarks one elderly Rosewind resident who has lived in Change Windsor Terrace since 1961. “We don’t Type of Crime 1993 1998 (percent) hear anything about breaking and enter­ Murder and ing or domestic violence or fighting. It’s manslaughter 9 7 –22 really quiet over here.” The North End Forcible rape 26 19 –27 Posse, the Windsor Terrace Crew, and Robbery 117 97 –17 other gangs have left. Police statistics confirm this impression. They show Aggravated assault 178 70 –60 declines, often dramatic, in many types Burglary 527 444 –16 of crime in the South Linden ar ea since Larceny (purse the implementation of the HOPE VI snatching, theft from grant. The number of reported vehicle car, shoplifting) 465 470 +1 thefts dropped 55 percent, property Vehicle theft 401 182 –55 destruction went down 42 percent, and burglary fell by 16 percent (table 2.1). Property destruction 497 289 –42 Arrests for aggravated assault dropped Drug abuse arrests 105 111 +6 60 percent. Disorderly conduct 35 6 –83

Source: Columbus Division of Police Uniform Index Of fenses, Community Liaison Section

20 Chapter 2 HOPE VI: Community Building Makes a Difference

Employment HOPE VI supportive services helped Exhibit 2.3 many Rosewind families begin the move to self-sufficiency. By February 1999 Training and Hiring Welfare Recipient Pays Off the Rosewind Social Services Support Program, coordinated under contract The very first Rosewind resident that Smoot hired became a project assistant by the Columbus Metropolitan Area trainee, who later moved on to take r esponsibility for the physical setup and day- Community Action Organization, to-day operation of an onsite construction of fice. Four years later this woman, a completed a needs assessment for 176 second-generation Rosewind resident, is still working for Smoot. “Some think families and produced individual devel­ when you hire welfare recipients, it won’t work without some special subsidy,” opment plans for 35 household heads. says Crystal Stowe, communications consultant for the Smoot Company. “In The social services program had provid­ Elizabeth’s case, she took the opportunity and has gr own with it. What Smoot has ed job-search assistance to 25 residents, offered in additional training she has built on. Now she understands the Smoot and 12 residents had obtained employ­ system well enough to be able to train someone else. She is a tr emendously valu­ ment through program referrals. able resource for our company and sets the tone for the ef fort.” Rosewind’s new administration building provides a convenient, central location Section 3-eligible (that is, people ear ning for several supportive services, making one-third of the area median or less). everyday logistics easier for working families. Built with HOPE VI construc­ The Smoot Company surpassed its goal tion funds, the building houses a during the heavy-construction period of daycare center, Head Start, an after- 1996 when it hired 41 new workers, 37 school program, and community meet­ of whom were considered low-income ing rooms, as well as staff offices and the hires. Of the 37 workers, 13 wer e resident council. The community action Windsor Terrace residents, 3 came from agency operates Head Start and the other public housing, 3 were from the daycare center. These two enterprises Youthbuild program, 8 were from employ five residents. Two other resi­ Linden, and 10 were low-income resi­ dents got training at Rosewind and have dents of other areas of the city. Smoot moved on to other facilities. In the after- collaborated with Columbus Public noons, four Rosewind residents, who are Schools Adult Education to train and also VISTA volunteers, operate an after- certify 28 Section 3-eligible people in school program that provides recreation, such fields as carpentry; masonry; elec­ tutorial, and nutrition programs for tricity; plumbing; and heating, ventila­ Residents learn childcare skills at Rosewind’s new daycare school-age children. The building hosts tion, and air conditioning. The trainees center. scouting and other children’s activities. received prevailing wages for the differ­ The VISTA volunteers also work with ent trades in residential construction. ing employment. The database was used senior residents. They run errands for Smoot also signed a contract with to fill Section 3 construction jobs at the seniors, perform light housekeeping Rosewind Payroll, Inc., a resident busi­ Rosewind, at the Four Corners construc­ chores, take them bowling, and help ness set up by the resident council to tion sites, and as a source of referrals for organize fundraising activities for them. manage the payment of Section 3 other employers throughout Columbus. trainees. A year later, 15 of the 32 In another HOPE VI employment initia­ HOPE VI construction activities provid­ trainees were employed, one was still tive, Brainstorms, Inc., a local consulting ed training and job opportunities for a in training, and two were in college firm, operated a microenterprise owner- significant number of Rosewind residents, (exhibit 2.3). other public housing projects, and the ship training program—the Risktakers Linden community. The Sherman R. The Smoot Company also developed an and Profitmakers Business Course—for Smoot Company agreed that at least applicant database of more than 800 residents of Rosewind and South Linden. 30 percent of its new hires would be public housing and area residents seek- Twenty-two students, all residents of the

Chapter 2 21 HOPE VI: Community Building Makes a Difference

Linden area, completed the yearlong community-based agency that provides authority and the city, there is a host course in 1998. One year later, 7 existing healthcare and daycare services, youth of smaller initiatives, some of which ar e businesses were generating 17 new jobs. sports programs, and other social serv­ faith based. Within easy walking distance Brainstorms, Inc., was successful in ices, serves Rosewind and neighborhood of Rosewind, the Greater Liberty Baptist securing $300,000 in loans to assist busi­ residents. St. Stephen’s Community Church of God in Christ has established ness startups for Linden residents. Homes is committed to building 30 its onsite Cupe Learning Center, with a affordable infill houses in Linden and bank of computers used for employment The housing authority entered into a helping low-income residents to buy training. Urban Concerns, a project of memorandum of understanding with the them through homeownership classes Zenos Ministries, has established an nonprofit Rosewind Resident Council. and downpayment assistance. Another afterschool tutoring center that serves The resident council screens applicants St. Stephen’s program brings together many Rosewind families. The group has for Rosewind units and places residents 10 Rosewind adolescents with student started a neighborhood kindergarten and in HOPE VI-related jobs. A newsletter, mentors from Ohio State University. plans to add one grade each year as the The Rosewind Chronicle, notifies residents Brainstorms, Inc., is training budding children grow. of meetings and services available in entrepreneurs in the reinvestment area Rosewind and South Linden. and providing technical assistance to the Building Community Leadership Rosewind Resident Council for eventual and Reinvestment Creating Change in the management of the daycare center in the Larger Community Rosewind administration building. In the past, Windsor Terrace residents were not an integral part of the lar ger “I don’t want to sound flip, but the community and were not actively HOPE VI program has been the best The housing authority involved in neighborhood activities thing to come along for citizens of this urged its residents to and governance. This pattern began to Linden area since Martin Luther King.” change once the HOPE VI grant led This is how “Mr. Linden,” Clarence become active in the Columbus to designate Rosewind and Lumpkin, a long-time community area advisory council, the surrounding area as a community activist and founder of the Greater reinvestment area in 1994. The housing Linden Development Corporation, sums rather than create authority urged its residents to become up how demolition and reconstruction a parallel structure active in the area advisory council, of a distressed public housing communi­ rather than create a parallel structure ty under HOPE VI sparked the r evital­ for neighborhood for neighborhood involvement. Six ization of an entire neighborhood. Rosewind residents serve on the council, involvement. Beginning in 1974 Lumpkin’s organiza­ along with Linden residents, neighbor- tion led a communitywide grassroots hood organizations, and public and pri­ effort, leading to a broad development HOPE VI funds support a specialist for vate entities. Subcommittees cover such plan for Greater Linden that is now areas as economic development, neigh­ being implemented. Columbus’ neighborhood development division for 5 years. This specialist, who borhood and capital improvements, works directly with the HOPE VI coordi­ housing, social services, safety, and Community Partnerships nator and the community-building youth activities. The subcommittees facilitator, will coordinate city programs make recommendations on funding for Through formal and informal partner- projects, the council discusses and ships, the housing authority helps to and supply technical assistance to the Greater Linden Advisory Committee approves projects, and the city authoriz­ strengthen and knit together Rosewind es expenditures. and the Linden area. The community and the community reinvestment area action agency acts as the contract advisory council. HOPE VI funds also Through this type of participation, administrator for Rosewind’s HOPE VI support the four VISTA positions at Rosewind residents are becoming part social service programs, running early- Rosewind. The housing authority has of the larger community. For example, childhood development programs in formal contracts with these organizations Jacqueline Broadus, longtime president Rosewind and throughout Columbus. and the Sherman R. Smoot Company. of the Rosewind Resident Council, is a St. Stephen’s Community House, a Along with the formal contracts and member of the Greater Linden Com­ major investments of the housing munity Reinvestment Area’s advisory

22 Chapter 2 HOPE VI: Community Building Makes a Difference

council and an advisory member for the from cleanup activities and tutoring Long considered progressive, the CMHA Columbus Metropolitan Community projects to resurrecting the 13th Avenue has encouraged resident involvement, Action Organization’s Northeast Action Labor Day block party. Beyond the value built community centers in its develop­ Center. It is possible, however, that the of the specific proposals, however, the ments, and found ways to give r esidents presence of experienced community housing authority wants the Block-by- access to needed support services. leaders in these organizations to some Block awards to develop leadership in Under the auspices of HOPE VI, the extent may have slowed the develop­ the community, according to Guest. housing authority continued to carry out ment of fresh, indigenous leadership “Community building is a slow process,” these activities, but with a difference. among Rosewind residents. he emphasizes. “There is no guidebook, For example, when it failed to win a you just feel your way along.” HOPE VI grant to revitalize its Linden The community reinvestment area is a Gardens project, the housing authority city entity and 46 percent of its almost looked to nontraditional funding, con­ $3.7 million initial funding came from The housing authority’s sidering the establishment of a commu­ the partnership with HOPE VI. Its fund­ nity partnership with the Builders ing consisted of $1.15 million in city of Block-by-Block grant Industry Association, to build 20 to 25 Columbus Community Development program, funded by affordable rental and homeownership Block Grant funds, $833,000 in city of units, plus a 60- to 80-unit elderly pr oj­ Columbus Urban Infrastructure Recovery HOPE VI, demonstrates ect. The housing authority plans to tear Funds, $1 million in HUD Community down Taylor Terrace, an obsolete high- Building Demonstration Funds, and the commitment of the rise building for elderly people, and $700,000 in HOPE VI social ser vice housing authority to replace it with new housing for elderly funds. The advisory council oversees dis­ and mixed-income residents. The plan­ bursement of a significant amount of community building ning documents for the project name resources. For example, between 1995 in the Linden area. more than 30 community partners, and 1999, the council approved 26 including the local offices on aging. grants totaling approximately $891,000. Grants included $50,000 for a communi­ Changing the Housing ty reinvestment area redevelopment plan, $60,000 to St. Stephen’s Community Authority’s Way of Doing Atlanta—A Homes for construction, $250,000 for a Business homeowners’ repair program, $16,456 “The world is changing for housing Technology-Oriented for teen jobs at the faith-based Urban authorities,” comments Guest. “Instead Concern, Inc., and $10,500 to the of the limited, well-defined housing mis­ Elementary School Windsor Terrace Learning Center’s Job sion we used to have, we now find our- Skills Education Program. selves responsible for—coordinating at Anchors a Mixed- The housing authority’s Block-by-Block least—everything that touches the lives Income Neighbor- grant program, funded by HOPE VI, of residents.” demonstrates the commitment of the In the past, public housing tended to be hood housing authority to community build­ a self-contained enterprise, defined pri­ ing in the Linden area. In January 1997 marily in terms of the housing supply the housing authority offered Linden itself. Public housing residents were The Challenge neighborhoods the opportunity to com­ often set apart by physical and social ccording to those closely associated pete for grants ranging from $1,000 to barriers. But some housing authorities $5,000. Eligible projects must enhance Awith it, at the heart of ever ything are taking an outward-facing stance, that has been done in Atlanta’s dramatic community relationships, employment, seeking resources in the larger commu­ housing, social networks, and neighbor- transformation of public housing was nity and establishing collaborative rela­ an irony. “It was the appalling fact,” hood services and encourage “demon­ tionships with city agencies and a wide strations of community pride.” Six recalls Dr. Norman Johnson, then special variety of community organizations to assistant to the president of the Georgia grants were awarded for a total of meet the needs of residents. $26,000. Winning proposals ranged Institute of Technology, “that not one

Chapter 2 23 HOPE VI: Community Building Makes a Difference

miles away, and recreational facilities firm experienced in managing low- appropriate for young people were income housing developments. The virtually nonexistent. Olympic Village was to be built directly across the street from Techwood, putting By the beginning of the 1990s, most of the HOPE VI project in the spotlight. Techwood’s 783 resident families— 98 percent African American—had been Some of the dramatic improvements that in the welfare system for many years. followed include: Over the years, the once clean, moder n ■ Centennial Place Elementary Centennial Place, Atlanta, before HOPE VI revitalization. Techwood Homes housing project, dedi­ School, a state-of-the-art technical cated by President Franklin Roosevelt in magnet school, was built, with the 1936, had been transformed by the pr es­ child from Techwood Homes had housing authority’s cooperation, on ence of too many people with too many ever crossed North Avenue to attend the former Techwood grounds, with problems and too few resources. Tech- Georgia Tech.” an unprecedented $12 million com­ wood had become the thing it had once mitment by the Atlanta Public Here, literally across the street from a replaced—a slum. A total of 284 of the Schools and generous support from desperately poor housing project named 1,067 original units were in such bad area corporations. Children of Coca- for it, sat the Georgia Institute of condition that they were no longer Cola and Georgia Tech employees Technology, a vast resource that was even occupied. attend classes alongside the children both a powerful symbol of and gateway The typical Techwood resident family of families living in public housing. to opportunity. But, because of a complex now lived on less than 10 per cent of the Neighborhood children, who have tangle of mutually reinforcing factors— area’s median income. Vandalism, drugs, first priority, make up half of the poor education, the marginalization of and other criminal activity demoralized student body of 500. The other the poor, the stigma attached to living Techwood residents and caused them to half come from families living in public housing, low self-esteem, a be shunned by the more fortunate citi­ above the poverty level or outside scarcity of positive role models, a lack zens of Atlanta, who did not tarr y after the neighborhood. of connections to the world of work and dusk on Luckie Street. higher education, and low expectations ■ Centennial Place, a 900-unit devel­ concerning school performance, career The situation at Techwood was repeated opment, houses residents of differ­ aspirations, and community behavior— in one after another of Atlanta’s deterio­ ent racial, ethnic, and income some of the people most in need of the rating, socially isolated housing proj­ groups side by side in apartments, opportunities presented by Georgia ects—and all of this in a city that had townhouses, and soon-to-be-built Tech were unable to access them. The attracted national attention as an urban single-family condominiums. success story. red brick towers of Georgia Tech lay to ■ Georgia Tech faculty helped design the north. The corporate headquarters the school’s innovative math and of Coca-Cola lay a few blocks to the Centennial Place Today science curriculum and interviewed west, just across the paradoxically prospective teachers. A kindergarten named Luckie Street. Yet the residents of Atlanta’s selection as the site of the 1996 teacher, Margaret Edson, won the Techwood Homes and the adjacent Clark Olympic Games, and the intense civic 1999 Pulitzer Prize for drama for Howell Homes were not able to use these pride that accompanied it, provided the her off-Broadway first play, Wit. The or other resources available to most other Atlanta Housing Authority (AHA) with school’s waiting list includes work­ citizens of the boomtown of Atlanta. the leverage it needed to transform ing and professional families, some Techwood and create a new model for Living barely a mile north of Atlanta’s of whom live across the city. public housing in Atlanta. The model thriving downtown business district, the was a mixed-income community owned ■ The old Techwood neighborhood is families of Techwood/Clark Howell were by the housing authority but operated now home to families eligible for isolated not only from opportunities but under the asset management approach, public housing who are working also from the most basic amenities. The using the expertise of a private-sector toward self-sufficiency, working nearest supermarket was more than 2

24 Chapter 2 HOPE VI: Community Building Makes a Difference

families of modest income, and How They Did It: Howell Homes, renamed Centennial middle-class families. Nearly 43 Reconnecting Public Place, the linchpin would be a new ele­ percent of residents have incomes mentary school of outstanding academic greater than $35,000 a year and Housing Families With excellence that would anchor a mixed- 20 percent have incomes greater the Mainstream income neighborhood. than $55,000 a year. The ethnic The critical element that opened the “Provided with the right type of envir on­ demographics also represent a door for change, according to AHA ment and the right opportunities, public change from the old Techwood: Executive Director Renee Lewis Glover, housing-eligible families can become 51 percent of residents are African was the selection of the city in the early part of the mainstream,” says Glover, American, 29 percent are white, 1990s as the site of the 1996 Olympic who was named executive director in 12 percent are Native American, Games. The eyes of the nation would be 1994. “The challenge is to create an and 8 percent are Latino. on downtown Atlanta, where Techwood environment in which they can thrive. ■ The housing authority’s job training Homes, Clark Howell Homes, and two And there we can learn from the best and placement program, carried out adjacent highrise buildings—1,702 units practices of the private sector.” in partnership with the Atlanta cor­ in four complexes, all badly deteriorated Atlanta’s selection in 1993 as a first- porate community, has placed 53 and crime ridden—comprised the round HOPE VI site brought an infusion residents with participating busi­ largest concentration of public housing of $42.4 million that could be used nesses. Taxes paid by these newly in Atlanta. But Glover, then chair of the toward the goals outlined by Glover, employed residents amount to housing authority’s Board of Commis­ with more to follow. The housing $63,348 per year. sioners, was determined that something authority forged partnerships with other ■ Crime has plummeted. Between more than physical renovation should be Atlanta-based entities such as Coca-Cola, 1994 and 1998 assaults in the old done. She set about lining up support NationsBank, BellSouth, Georgia Institute Techwood/Clark Howell properties for a deeper and more lasting transfor­ of Technology, All Saints Church, the fell from 325 to 23, robberies from mation, and her leadership proved to YMCA, and other local organizations that 85 to 2, burglaries from 56 to 8, be critical. could help Techwood residents realize narcotics crimes from 84 to 6, and their goal of self-sufficiency in a vandalism from 66 to 12 cases. supportive environment. No homicides have been reported Centennial Place, the first successful since 1995. mixed-income public housing develop­ ■ The housing authority’s Public ment and one of the most sophisticated Housing Management Assessment public-private ventures in the country, Program score—a scale from 1 to was planned and developed by the 100 that HUD officials use to judge newly formed Integral Partnership of the overall performance of public Atlanta. The partnership is a joint ven­ housing authorities—rose from Atlanta‘s Centennial Place after HOPE VI revitalization. ture involving the housing authority, an 36 to 97 in 4 years. Atlanta-based urban real estate develop­ ment firm known as the IntegralGroup, ■ A new $4 million YMCA fitness What the housing authority needed, she and McCormack Baron & Associates of facility with a daycare center and a argued, was a comprehensive strategy St. Louis. The AHA retains ownership of new police substation have been for reconnecting public housing resi­ the property, while McCormack Baron— built next to each other. dents to mainstream life and opportuni­ an experienced property manager that ■ A new retail center anchored by a ties. An evolving plan called for the has done pioneering work in creating national grocery chain will be built housing authority to accomplish this affordable housing—markets and man- two blocks away. through the creation of mixed-income, ages the complex. privately managed housing built around When it was announced that another attractive amenities, a practical welfare- “The state of Georgia has also been very 83 units in Centennial Place would soon to-work job training and placement supportive,” says Glover, “by changing be available for occupancy, 1,100 appli­ program, and an array of key supportive the law to allow all the public housing cations were submitted in 10 days. services. In the case of Techwood/Clark authorities in Georgia to compete for tax

Chapter 2 25 HOPE VI: Community Building Makes a Difference

credits—thus making it possible for pri­ the debt, 30 percent would take the invitation to move back, 149 have cho­ vate developers to work with housing form of private debt, and the final 30 sen to remain in Section 8 housing, 74 authorities to create mixed-finance/ percent would become private equity. in other public housing, and 1 in a nurs­ mixed-income communities—as well as Public housing residents would pay only ing home. Of the nonresponding group, by codifying the mixed-income model 30 percent of their adjusted income, as 108 were evicted, deceased, or moved and making special tax credit allocations in other public housing developments, without notice. directly to housing authorities.” and other low-income residents would “Based on the letters we have r eceived, pay a subsidized rent. The 360 new Centennial Place’s particular appeal cen­ many of those who did not r eturn are public housing units represented about tered around a unique elementary school very happy at their new sites,” says 46 percent of the number of usable pub­ from whose windows youngsters could Glover. “We’ve been able to provide lic housing units in the old Techwood/ look out on the transformed Techwood, them with some real opportunities. It Clark Howell Homes. the Coca-Cola headquarters building, helps that there is a decent market for and the towers of Georgia Tech, to Section 8 housing in Atlanta. But the which they were now linked by an inno­ key to maximizing this resource is mak­ vative curriculum designed for them by ing sure that the program is operating members of the Georgia Tech faculty. well, with good landlords who are doing their job, managing properties well, and being held accountable.” The Challenge of Relocation “The question of if and where to relocate Invited to give their input concer ning became the first chance many of these the planned demolition and the creation residents ever had to make a major deci­ of a mixed-income community, residents sion about their own lives,” according to expressed the fear that more affluent Resident trains in childcare skills at Atlanta‘s Centennial Place. Doug Faust, assistant director for hous­ families would displace them. The level ing operations. “We provided transporta­ of trust toward the housing authority tion for them to go out and personally was low among residents, due to decades The housing authority negotiated an inspect multiple housing opportunities. of bad feelings and perceived broken agreement with residents that addressed Housing authority staff were assigned to promises. The initial talk of asset man­ a broad spectrum of concerns and guar­ each site, specifically for this purpose, agement and privatization did little to anteed replacement housing and the and residents were presented with a reassure residents about HOPE VI. In right to return as new units became wide array of choices. The bottom line is addition, the tremendous time pressure available. The housing authority contin­ that everybody was either successfully from the upcoming Olympics gave ues to work with original residents on a relocated or moved back.” It should be the housing authority little leeway to family-by-family basis, using Section 8 noted, however, that in Atlanta and overcome a decade-long distrust in certificates, other available public hous­ many other sites, even excellence in order to forge a working relationship ing, and assisted homeownership pro- personally serving residents did not add with residents. grams. In August 1996 all 677 of the up to an overall strategy for the use of former families of Techwood/Clark A formula was developed through a Section 8 vouchers or for working to Howell who were still eligible for public process involving the developer, the extend community building to strength- housing were invited to apply for resident planning committee, and the en the service provision network in replacement housing. Of the 345 who housing authority. Of the 900 new units receiving neighborhoods. in the completed Centennial Place, 360 responded, 78 have moved back in as (40 percent) would be designated as new units became available, 169 have Centennial Place Elementary market rate, 360 (40 percent) as public chosen to remain in Section 8 housing, housing units, and 180 (20 percent) 90 in other public housing, 1 in a nurs­ School: Building Opportunity, designated for other low- and moderate- ing home, and 1 in a homeownership Building Community income families. opportunity. Six others were evicted, deceased, or moved without notice since Dr. Norman Johnson, a former special Using HOPE VI funds, the housing the invitation date. Of the 332 former assistant to the president of Georgia authority would assume 40 percent of residents who did not respond to the Tech, played a key role in organizing

26 Chapter 2 HOPE VI: Community Building Makes a Difference

support for the school. Johnson believes Kuhlman made a special effort to recruit graders recently did a project on the Centennial Place Elementary has made male teachers (13 of the 45 teachers ar e solar system in which they measured an important contribution. The school men), which she regards as an important the distances between the planets and provides a training ground where chil­ presence for children from single-parent displayed their findings on an Excel dren from a low-income neighborhood homes. Although no reliable indicators of spreadsheet. Participatory arts activities can get the academic skills they need to academic progress will be available for at are ongoing. succeed at a rigorous middle school and least 4 years, the buzz of busy, engaged In July 1999 the school switched to a high school and ultimately take advan­ children in the classrooms offers credible year-round calendar—45 days on, 15 tage of resources such as Georgia Tech. It promise for the school’s mission. off. One of the benefits of this arrange­ also acts as a magnet for social and eco­ ment is that remediation is offered nomic integration in the neighborhood. … technology-rich regularly during the 15-day breaks, Johnson had been involved in the push along with various enrichment programs. for a new school since the late 1980s, classrooms and an Children learn at their own pace. Spe­ as the feeling grew among Georgia Tech innovative curriculum cialized instruction is offered to students faculty that the college’s commitment with speech impairments, learning dis­ to recruiting and supporting minority provide students with abilities, and other special needs. students ought to begin with creating daily opportunities to Centennial Place Elementary welcomes ties to minority schoolchildren across parental presence and involvement. the street. In 1992 Johnson and his become comfortable The Parent Center has computers, colleague Eric Pickney, a staff member with science and phones, and other resources. Under the assigned to coordinate services for the Techlinks program, a parent can take residents of Techwood Homes, persuad­ technology … home a computer to use in r eturn for ed the Atlanta School Board to commit 11 hours of volunteer work a month. $12 million toward tearing down the On Saturday mornings there are work- old Fowler Elementary School in The result of this collaboration is a shops on parenting skills and teaching Techwood and creating a brand new child-centered, community-based ele­ and, for kids, reading and preparing for elementary school in its place. The mentary school for grades K–5 that the Iowa Test of Basic Skills. Housing next year, Johnson began serving on emphasizes science, mathematics, and authority staff work closely with the the Atlanta School Board, including a technology. Thanks to partnerships with school to respond to concerns such term as president. Georgia Tech and a number of Atlanta- as the need for parents to take a more based companies, technology-rich class- A new kind of academics. In planning active role in their children’s education rooms and an innovative curriculum for the new elementary school, the or helping to defuse a problem situation provide students with daily opportuni­ board decided to allow the school’s at school. ties to become comfortable with science dynamic new principal, Dr. Cynthia and technology, while developing their The adjacent YMCA houses additional Kuhlman, to recruit an entirely new own creativity and spirit of inquiry. resources, including childcare for chil­ faculty. This prepared the way for an dren ages 2 to 5, an afterschool car e pro- educational experiment that would be There are five multimedia computers gram for children of working parents, unencumbered from the start by old in every classroom. The schoolwide and a family development center. ways of doing things. computer network has Internet access. Georgia Tech faculty and staff, along Teachers receive laptops. Classrooms Georgia Tech faculty and other experts with other working people, also use are connected by video monitors, which sat on the panels that inter viewed these resources, providing role models are attached to VCRs and digital and prospective teachers. (Residents were and connections to mainstream opportu­ video cameras. A state-of-the-art tech­ also invited to participate but did not.) nities. The elementary school uses the nology lab features Gateway Destination Georgia Tech faculty helped design a YMCA for recess activities. Nearby Stations—six mobile units on carts that curriculum that would maximize a Sheltering Arms, a nonprofit facility sup- can handle everything from Internet and child’s ability to succeed in a global ported by the United Way and private cable access to laser disks and CD-ROMs. society and move naturally into the donations, offers daycare for children up Kindergartners use PowerPoint to make opportunities offered across North to 2 years old. All these facilities increase presentations, while a group of third Street at Georgia Tech. the attractiveness of the neighborhood.

Chapter 2 27 HOPE VI: Community Building Makes a Difference

Kuhlman says she has had inquiries fr om “What TPI did,” Johnson concludes, “The travesty,” says Johnson, looking parents living in other neighborhoods “was bring the community leadership back, “was that Fowler was producing (whose children attend Centennial Place on board.” That leadership was to prove kids who could not compete at the mid­ School) about the availability of apart­ instrumental in the development not dle school level and fell even further ments in the development. only of the elementary school but a behind when they reached high school. number of ancillary projects in the By then, Georgia Tech—or any other Such evidence of parental interest in surrounding neighborhood as well. place of higher education—was hope­ the HOPE VI community underscores Community and corporate leaders lessly beyond reach.” Now, thanks to the the strategic value of the location of the included Ingrid Saunders-Jones, vice state of Georgia’s new Hope Scholarship Centennial Place School. The old Fowler president for community development at program, students who graduate from School had been located in a cul-de-sac Coca-Cola, and Sam Williams, then with high school with good grades and meet in Techwood with the sole purpose, as Fortman Properties, who now heads the other requirements can go on to state Johnson characterizes it, of “serving the Atlanta Chamber of Commerce. Johnson schools, essentially tuition-free. Johnson reservation.” Johnson favored building explained that Georgia Tech also stayed believes that, before long, young men the school in a location accessible to the the course and continued to insist that and women will be looking out of the whole community. Centennial Place School had to do mor e windows of Georgia Tech at the rooftops “You are never going to have a mixed- than provide a decent education for the of Centennial Place where they grew up income neighborhood without a great children of the neighborhood. It had to and at the elementary school where it all school,” was Johnson’s argument before be the first step on a serious car eer path began for them. school officials, civic leaders, and other out of poverty. There was consensus neighborhood stakeholders, including among the partners on this strategy. representatives from Georgia Tech. “It’s Moving Toward Self-Sufficiency: as simple as that. So if we want to tur n The Work Force Enterprise Program this community around, having an ele­ “You are never going mentary school that works is the key. To be eligible to live in Centennial Place, to have a mixed-income Getting it out of that cul-de-sac was the the head of the household and all able- first crucial step.” neighborhood without bodied family members of school or employable age must be either employed, Renee Glover agreed. She arranged for a great school …. an even swap of land—the old Fowler in school, or actively enrolled in an Elementary School site, which belonged It’s as simple as that.” employment preparation program. The to the board of education, for 1.25 acres housing authority’s own Work Force of the 44-acre Techwood housing proj­ Enterprise Program has become a model ect. The former plot became part of the “In an environment where race exists as for welfare-to-work programs. Located new development; the latter, the site of a factor in everything, just beneath the onsite, convenient to Centennial Place the new school. surface,” says Johnson, “it takes a br oad- residents and the neighborhood, the pro- gram has attracted an impressive list of Working with neighborhood leaders. based coalition like the one TPI helped pull together. It takes a group like this, corporate and other partners from the Techwood Park Inc. (TPI), a nonprofit Greater Atlanta community. organization founded in 1992 and made watching the ball all the time and up of residents and other neighborhood keeping the long-term best interests of The program was designed through stakeholders, joined the fight for a new the neighborhood community on the the Techwood/Clark Howell HOPE VI school, Johnson recalls. Although the table, to bring an ambitious project like planning committee process, with the organization had no funds of its own to this to completion. They did not bring input of public housing residents and contribute, the group pulled together dollars, but they did bring moral and research done by the Georgia Depart­ under the leadership of Milton Jones community capital, which was essential ment of Labor on currently marketable (now with NationsBank) and helped to the project.” skills. It was launched in May 1997 sustain community support for the new When students graduate from Centen­ through a contract with Goodwill school and legitimize it in the eyes of the nial Place Elementary they attend nearby Industries, Inc. After the yearlong pilot city, the school board, and other corpo­ Inman Middle School and then Grady program, the housing authority brought rate and civic partners. High School, both with fine reputations. in the YMCA (as program manager) and

28 Chapter 2 HOPE VI: Community Building Makes a Difference

the Work Force Enterprise Program to Work Force Enterprise Program as an sive 12-week followup component focus­ the Centennial Place community center. eligible activity under the Temporary es on what Baraniuk likes to call “the Assistance for Needy Families (TANF) recovery of good grammar.” In the program, case workers help appli­ program, provide childcare and trans­ cants articulate their career and family Participants also perform community portation help where needed, as well as goals and identify personal and other service—helping with the program, at tools, uniforms, and medical care. barriers (such as substance abuse prob­ the daycare center up the street, or at lems, educational deficits, or childcare Residents maintain their TANF benefits nearby schools or churches. In addition or transportation needs) that have stood throughout their participation in the to reinforcing new “people” skills and in the way of successful employment. Work Force Enterprise Program. Staff values, the community service stint The caseworker then pulls together the identify and occasionally help to create helps residents experience community supportive services necessary to move appropriate positions, coaching residents collaboration. This in turn can awaken a applicants toward self-sufficiency and through the application and interview new sense of personal responsibility and tracks them through the career-readiness processes. Case managers then continue community, according to Baraniuk, who training process. to follow up on and support the pr ogress cited her own experience. of their clients as successful employees Residents first undergo an assessment to The housing authority established for 1 year. determine their degree of readiness and performance-based contracts with serv­ need for remedial work or for alcohol or ice providers. It monitored them on a substance abuse rehabilitation. This is monthly basis and conducted regular followed by a daylong orientation pro- site visits. Annual evaluations include gram that culminates in the resident participant surveys. It was resident feed- signing an agreement that spells out back that persuaded the housing author­ attendance and other expectations and ity to change Work Force Enterprise probes his or her seriousness about Program providers, moving the program work. Each resident is then assigned by to the YMCA at Centennial Place, wher e a case manager to one of four tracks. it would be more easily accessible and Residents who score 85 or above on subject to a more consistent philosophy. their life-skills/career-readiness test may Atlanta afterschool program reinforces learning. A self-contained GED program is now move directly into the internship/com­ offered at the community center as well. munity service component, followed by The Work Force Enterprise Program the YMCA’s computer class or some The program addresses two other com­ delivers jobs through its corporate part­ other specific employment training, mon but often difficult-to-acknowledge ners. To date, the housing authority has given their interest and aptitude. Others, barriers to employment—lack of recruited 61 business partners, including following their community service stint, motivation and paralyzing fear of the such companies as Georgia Power move directly into a career placement unknown—by teaching basic life skills. Company, Citizens Trust Bank, the Ritz opportunity. Those who lack the requi­ Issues here include managing money Carlton, the YMCA, and Marriott site life skills or career readiness must and stress and finding positive ways of Corporation. Companies participate in begin with that, while others are encour­ handling conflict. The life-skills training various ways—from supplying positions, aged to address issues that, if neglected, involves 4 days of intensive motivational mentors, and training to underwriting will undermine their best efforts. and visionary training, led by a dynamic career fairs and other opportunities for facilitator experienced in working with The program offers assessment and meeting prospective employers. Local families struggling for self-sufficiency. referral services in the case of substance businesses can receive a tax credit of up abuse or an abusive domestic situation. The innovative PaceSetters program, to $8,500 per resident employed. Participants with educational deficits established by resident Irene Baraniuk receive remedial education, literacy (who is now the program coordinator for training, and preparation for the GED. the Work Force Enterprise Program) with Changing Lives The housing authority or the Fulton the help of Toastmasters International, Through July 1998, 127 residents had County Department of Family and offered residents a chance to gain confi­ enrolled in the job-readiness compo­ Children Services, which recognizes the dence through public speaking. An inten­ nent, with 91 (or 77 percent) having

Chapter 2 29 HOPE VI: Community Building Makes a Difference

completed the course. Forty-one residents variety of area corporations. These newly care, and 54 older children are partici­ had enrolled in technical training class­ employed residents, many of whom once pating in constructive, monitored after- es, with 17 (41 percent) having complet­ received welfare benefits, now generate school programs, thanks to HOPE VI ed that course. Eighty-five had enrolled taxes equal to $63,348 a year. As many as funding (exhibit 2.4). in the community service segment, 55 22 residents hold jobs generated through All applicants to Centennial Place, (78 percent) having completed it. Forty- AHA’s HOPE VI contract with the YMCA whether new or returning, must under- nine are enrolled in GED classes, with of Metropolitan Atlanta, and a few place­ go a criminal background check. The one having already earned her diploma. ments have been made with AHA con­ screening process, according to John Twenty residents have successfully com­ struction contractors and subcontractors. Spillers, director of protective services, is pleted the PaceSetters public speaking HOPE VI funds also pay for job-training applied to everyone—not just the head program. programs and childcare for resident of the household. Residents receive iden­ Many residents have already embarked families that are trying hard to become tification cards and decals for their vehi­ on new careers. By spring 1999, 53 resi­ self-sufficient. Thirty-one residents are cles. Where once strangers came and dents had been placed in jobs with a currently receiving assistance for day- went as they pleased, gated parking ar eas now require a coded card for access. New public housing residents receive a Exhibit 2.4 HUD booklet that spells out their rights and responsibilities. The AHA acknowl­ From No Experience to Full-Time Employment edges the rights of residents to live in decent, safe, and sanitary housing; to In the summer of 1997, Techwood resident Shereka Brown was a young mother have repairs performed in a timely man­ of three, with no job experience except in construction. But she confided a ner; and to organize as residents without dream to her case manager: She had always wanted to be a bank teller but harassment or retaliation from property believed no one would ever hire her for a position of such public visibility and owners or management. The booklet responsibility. Having gained a new confidence fr om her Work Force Enterprise details resident responsibilities such as Program classes, and encouraged by her case manager and pr ogram staff, she conducting oneself in a manner that will offered to work gratis at Citizens Trust Bank for 1 month. Bank of ficials were so not disturb one’s neighbors, not littering impressed by Brown’s work that they enrolled her in their bank teller training the grounds or other common areas, and program. When she scored the highest in her class, she was hir ed as a full-time reporting any defects to management. teller at the bank’s East Point office, where she has since been promoted to These rights and responsibilities, devel­ commercial banker. Brown was recently recognized by National Association of oped with the input of a r esident plan­ Housing and Redevelopment Officials as a public housing resident success story. ning council, are enumerated in even Rodney Carter tested out of the job-r eadiness class and moved directly into more specific language in the lease itself, technical training. After completing a 17-week computer skills pr ogram through according to Peggy Patterson, assistant YMCA Training Inc., last February, he received several job offers ranging from manager of Centennial Place. “No live-in $10 to $14 an hour. He is now working as a customer account clerk for A T&T. boyfriends. No drugs. No defacing of Cederick Hoskins completed the job-readiness class in December 1998. Having property,” she explains. “Two violations pursued his identified interest and demonstrating aptitude with staff support, and you’re out. And if your guests do it, he applied to the Atlanta Technical Institute for Autobody and Fender. He is you did it.” There have been two such now in training, with the prospect of earning a good living for himself and evictions in 3 years. his family. Village Management Company of Atlanta, Angela Harris started the program as a young mother of two who had her the private management company that GED and some additional training but, by her own admission, lacked the moti­ operates Centennial Place, continues to vation and confidence to go out and find a job. Motivational and visionar y monitor residents to make sure they pay training provided the encouragement she needed. Having expr essed a desire to their rent on time, have a means o f live­ work with children, Harris completed the program and landed a job as a case lihood, or actively pursue a life plan. manager working with young people in the YMCA ’s Leaders in Training pro- Home visits determine whether families gram. She continues to grow personally and professionally. are keeping up the property. “We don’t accept people who intend to just hang

30 Chapter 2 HOPE VI: Community Building Makes a Difference

out,” says Patterson. “They need to be at the corner of North and Luckie, The Atlanta Housing Authority’s decision employed, in school, or in a r ecognized which observers say would have been to make Centennial Place and several training program—and that means every unthinkable a few years earlier. A large other public housing developments able member of the family.” retail center, to be anchored by a nation­ mixed-income communities—developed, al grocery chain, is planned nearby. managed, and marketed by a for-profit Condominiums are going up just to the partner—led to a redefinition of its own Creating Change in the south of Centennial Place. role in providing what Renee Glover Larger Community prefers to call assisted housing to families As a result of the success of Centennial in need. When she pulls into the Centennial Place Elementary School, a second char­ Place School parking lot at 6 a.m. these ter school is now being developed, again “We no longer see ourselves just as a days, Cynthia Kuhlman often passes jog­ with all new faculty, at another new property manager,” says Renee Dixon, gers—people of all races, who clearly AHA mixed-income housing develop­ director of resident services. “We see feel comfortable using the once-avoided ment—the Villages of East Lake, 10 ourselves as a catalyst and a community thoroughfare at dawn. In the early miles east of downtown. It will include builder, facilitating and overseeing the morning hours and after work she sees a daycare center for children ages 2 services our residents need to move Georgia Tech faculty and staff, Coca- months to 4 years. toward self-sufficiency, and offering a Cola executives, and working people diverse range of housing products that coming in and out of the Y—either stop- can help them in that transition.” ping by for a workout or picking up The presence of their children from daycare. hundreds of well-kept The presence of hundreds of well-kept Oakland— homes with a growing number of work­ homes with a growing ing families has clearly had a positive number of working Reclaiming a effect on the surrounding community, as has the dramatic reduction in crime in families has clearly Community Through and around Centennial Place. Between had a positive effect 1994 and 1998, assaults in the Techwood/ Partnership Clark Howell area declined from 325 to on the surrounding 23. Robberies and burglaries also fell— community … from 141 to 10, with no homicides The Challenges reported since 1995. Narcotics crimes n the 1980s and early 1990s, Lock- fell from 84 to 6. Cases of vandalism Changing the Housing fell from 66 to 12. A new neighbor- Iwood Gardens, a public housing hood police substation—built with Authority’s Way of Doing project in Oakland, California, was like funds raised by Techwood Park, Inc.— Business Beirut, according to Lockwood Gardens now sits next to the YMCA. security officer Jerry Williams. “Resi­ Centennial Place Elementary School dents were being held hostage in their The three new institutions at Centennial itself might never have existed, along own homes.” Yet the major source of Place—the YMCA, the police substation, with a good many other new neighbor- crime and violence—the four infamous and Centennial Place Elementary hood institutions, had not the housing drug dealers who ruled the neighbor­ School—supply social infrastructure that authority been willing to cooperate with hood—paradoxically provided the only is, according to Johnson, critical to the Techwood Park, Inc., and other commu­ employment and the closest thing to a success of Centennial Place and the new nity partners in a way that was entir ely career ladder for its 372 families. Drugs community forming around it. The three new for public housing management. were big business in Lockwood Gardens. components are education, security, and “Renee Glover and her people realized When one local drug czar died, he was a place for pursuing activities that devel­ that public housing as we knew it could borne to his final rest in a horse-drawn op the social fabric of the community. no longer exist,” according to Johnson. carriage, followed by a 4-mile-long The transformed urban setting has “It was time to look at the bigger pictur e funeral cortege. encouraged commercial development as of the community and to decide to be well. A new Holiday Inn opened in 1997 part of it.”

Chapter 2 31 HOPE VI: Community Building Makes a Difference

trouble. Edith Brown remembers young ■ A groundbreaking preapprentice­ males shooting dice. Catherine Smith’s ship program for young workers, son was killed by accidental gunplay. created through a partnership with the American Federation of Labor– Supportive services were few and resi­ Congress of Industrial Organizations’ dents worried that their children were carpenters’ and painters’ unions and cut off from opportunities in the wider based at Lockwood Gardens, has community. And families of Asian back- trained more than 35 graduates, ground, who made up 21 percent of the 90 percent of whom are now population of Lockwood and Coliseum employed with salaries ranging Gardens, found themselves a minority from $10.40 to $30.50 per hour. within a minority, isolated from most of their fellow residents and from access to ■ Thirty-six residents have qualified opportunities by barriers of language, for the GED, 48 have passed the culture, and immigrant status. U.S. citizenship test—20 of them have already been sworn in as Residents themselves, mostly single citizens—and 52 Vietnamese and women trying to raise families on Cambodian residents have improved severely limited incomes, felt powerless their English language skills. to change the environment or to gain access to opportunities for a better life ■ Three resident-initiated health fairs Lockwood youth learn renovation skills through union for themselves and their children. There have drawn an average attendance preapprenticeship program. was no way out, residents cynically of 500 community and public joked, but in a casket. housing residents. There were four murders in the project in 1992. Criminals treated the neighbor- ■ Across the street from Lockwood hood with such contempt that bodies Lockwood Gardens Today Gardens, a new village center, based from murders in other parts of the city at Havens Court Middle School and Dramatic improvements have occurred were dumped there. Lockwood and the adjacent Lockwood Elementary at Lockwood Gardens: nearby Coliseum Gardens, another pub­ School, provides a safe place and lic housing project, shared the highest ■ Drug activity has greatly dimin­ constructive activities for young per capita homicide rates in the city. ished. Between 1993 and 1997, children and older youth. With the What street lighting existed had been arrests for drug possession and help of a $100,000 HOPE VI grant, rendered useless by vandals. On a sales fell by 84 percent. The number additional programs will now be moonless or cloudy night, remembers of assaults reported dropped 70 developed in response to community long-time resident Edith Brown, you percent, and incidents of theft and priorities established by a newly couldn’t see your hand in front of your larceny fell by 72 percent. Parents formed village council that includes face. Residents could not call a taxi or allow their children to stay outside public housing residents. order out for a pizza. Vendors were after dark. There have been no ■ All of Lockwood Gardens’ 372 orig­ reluctant to enter Lockwood Gardens. homicides in Lockwood Gardens inal units will ultimately be replaced in the past 7 years. Lockwood’s 396 lowrise and semi- by newly refurbished units within detached living units—most of them dat­ ■ Fifty-nine residents were employed the development. No net units will ing back to 1939—were in poor shape, in construction and other jobs gen­ be lost. The number and configura­ despite efforts by the Oakland Housing erated by HOPE VI. At two job tion of bedrooms are being altered Authority (OHA) to keep this outsized, fairs, jointly sponsored by OHA to accommodate large families. 22-acre project in good repair. Two and the Bay Area Urban League, ■ The HOPE VI program has been dozen units were completely unusable. some 100 public housing residents expanded to include the public There was no place for children or young obtained job information, submitted housing project of Chestnut Courts people to play, although there were, say 225 job applications, and received (with an additional HOPE VI grant) residents, plenty of opportunities for 125 employment offers. as well as the lower Fruitvale ar ea,

32 Chapter 2 HOPE VI: Community Building Makes a Difference

a business district located 2 miles from Lockwood. Over the past 2 years, a HOPE VI partnership of Exhibit 2.5 the housing authority with the East Bay Conservation Corps and the Lockwood’s HOPE VI Partners Fruitvale Community Collaborative ■ Asian Community Mental Health Services provides outreach, organization, has resulted in the renovation of and translation services. 75 business facades, stemming ■ the flight of businesses from the The Bay Area Urban League provides assistance with job placement and a Fruitvale area. Through coordinated peer group support program for resident parents. and leveraged efforts, 36 new busi­ ■ The Boys & Girls Club provides recreation, antidrug education, and learn­ nesses were started (two by public ing activities, including computer training. It also of fers coaching and housing residents) and 83 jobs mentoring, esteem-building classes, field trips, and help with homework. were created. ■ The East Bay Conservation Corps has developed a lear ning center that provides basic literacy and numeracy ser vices, GED preparation, and pre- How They Did It: vocational skills training. ■ Building Partnerships The East Bay Small Business Development Center is pr oviding technical assistance and training in self-employment and small business development “The people of Lockwood Gardens had for public housing residents and for businesses in the surr ounding commu­ agreed it was time to do something,” nity with the potential to employ public housing r esidents. Council President Bob Craig recalls. ■ The University–Oakland Metropolitan Forum is providing HOPE VI “First there was the community policing program evaluation. and then additional security officers. ■ The International Child Care Resources Institute, a nonprofit research and When the fence went up, and the speed technical assistance organization concerned with childcare, provided training bumps, and the bright lights, it all start­ for Lockwood residents to become childcare workers. The institute is also ed to come together. And we said, ‘They working with the resident association to locate a facility and develop an onsite are going to do something.’” child development center and childcare worker apprenticeship program. “It begins with the recognition that a ■ A strong partnership with the Alameda County Department of Social public housing resident is as much a Services provided training and case management for public housing r esi­ citizen as anyone else and has the same dents. The department funds many private nonpr ofit organizations to rights and responsibilities as any other deliver social services in the county and works to encourage collaboration citizen,” says Harold Davis, retiring among participating agencies. The department has a memorandum of director. “Part of our job was to get peo­ understanding with the housing authority to track public housing families ple inside and outside public housing to and provide services. realize that and to encourage residents to become involved in the community. In other words, we respect our residents, broker role, working collaboratively with The housing authority often provides but we have expectations for them. And a variety of nonprofit organizations and space for the agencies to bring them on- we have found that people, in the main, public agencies in the Oakland and East site and, in some cases, will also pr ovide will respond to that challenge, if given Bay area. In the process, the housing initial support for up to 3 years with the the opportunity.” authority has had to let some initial sup­ agreement that the agency will then Through HOPE VI, the OHA has worked portive service partners go, but then has cover its own expenses. taken on new ones with a better fit. This to forge partnerships with residents and Several other groups such as the Police evolutionary, collaborative spirit has community organizations. From the Activities League, which provides given OHA considerable flexibility. It beginning of HOPE VI, the housing overnight camper scholarships for has also made a richness and br eadth of authority decided not to become a ser v­ youth, and the city of Oakland, which resources available for community build­ ice provider. Instead, it would play a supports various programs, play more ing in Lockwood Gardens (exhibit 2.5).

Chapter 2 33 HOPE VI: Community Building Makes a Difference

informal roles in developing opportuni­ surrounding community as well as to Childcare. An onsite Head Start program ties for resident youth and adults. Lockwood residents. provides supervised care and early edu­ cation for 34 preschool-age children Brown serves as liaison with outside from the neighborhood, 22 of them Resident Involvement service providers and works with the Lockwood residents. An onsite Child resident council to facilitate community- A critical factor in the progress made has Development Center will accommodate building activities. The fact that Brown been resident involvement and the par­ up to 50 children ages 2 months to 5 has a small staff of one or two persons ticipation of a strong resident council. years. Thirteen home-based family day- onsite at Lockwood Gardens greatly Lockwood’s resident council, whose five care centers operating in public housing facilitates the liaison work with residents officers are elected for 2-year terms, developments and in nearby Section 8 and community partners. holds monthly open meetings to gather sites provide care for 114 children, 88 input from residents. The council has percent of whom are public housing constant access to housing authority residents. This service is also available staff and helps to communicate and Technical assistance nights and weekends to accommodate explain decisions and emerging opportu­ from local resources the hard-to-meet childcare needs of nities to the community. It helped shape those residents who work retail and the screening criteria for residents of the is credited with building swing shifts. revitalized Lockwood Gardens and the resident awareness of Training adults for real jobs. Twenty-one physical design of Lockwood Gardens. of the first 25 graduates of a childcar e The council also worked with the Child the potential of HOPE VI training and certification program, Resources Institute on the new Child and opportunities for set up in partnership with the Inter- Development Center. national Child Resource Institute, are resident involvement. The Lockwood Gardens Resident Council now licensed family daycare providers. was also influential in persuading the They serve Lockwood and the surround­ Unified School District to locate the ing community and earn an average of area’s new village center (the second of Responding to Resident $1,970 a month. The Child Develop­ only three in the city) at Havens Court Concerns ment Center will prepare 40 to 50 paid Middle School. Residents identified five major areas of childcare apprentices to qualify for Technical assistance from local resources concern at a meeting with the HOPE VI advanced certification by the state of is credited with building resident aware­ technical assistance team and housing California. Hands-on learning under the ness of the potential of HOPE VI and authority management in fall 1996: supervision of a trained professional opportunities for resident involvement. over 3 to 6 months, depending on indi­ ■ A shortage of childcare services—a vidual skill levels and performance on Lockwood received a Tenant Oppor­ serious obstacle to holding a job. tunities Program grant from HUD for periodic tests, will be supplemented by resident leadership training and capacity ■ The absence of training programs courses in early-childhood development building in 1995, but only a small por­ tied to real jobs and focused provided by Peralta Community College. tion of the funds has been spent thus far on adults. Early in the HOPE VI program, it was because the multipurpose building was ■ The lack of adequate transportation found that many residents were unable not ready, says Sharon Harrison Brown, to job opportunities. to get jobs associated with HOPE VI head of resident and community services construction because they failed a drug ■ for OHA. Resident council members Their children’s isolation from test. Although the Lockwood communi­ have been active participants in the opportunities across the city. ty was quite successful in reducing drug- budget task force and as advisors to the ■ The lack of convenient computer related crime, it may not have been as HOPE VI process in general. For exam­ training facilities for residents. successful in reducing personal drug use ple, the housing authority backed the to boost employability. resident council’s recommendation that There has been progress with respect to A partnership with the American Lockwood’s new Child Development all of these concerns. Federation of Labor’s carpenters’ and Center be open to families from the painters’ unions coordinated by the

34 Chapter 2 HOPE VI: Community Building Makes a Difference

America Works Partnership has trained improvement projects. The young helping to install six high-tech comput­ more than 35 young public housing r es­ people, including Lockwood residents, ers with Internet access in Lockwood idents, ages 17 to 24, for car eers in the helped renovate more than 75 storefront Gardens’ new multipurpose center. building trades. Ninety percent of them façades in the commercial district of Training and technical assistance will be found employment at good pay. About Fruitvale. The Boys & Girls Club of provided by the Oakland Unified School 25 percent of the trainees are Lockwood Oakland has brought expanded recre­ District’s adult education program. residents. Support groups help the ational and education programs to Second hand computers—30 have newly employed deal with the chal­ Lockwood, as well as to nearby already been donated by Pacific Gas and lenges of the workplace and pursue a Coliseum Gardens. The Boys & Girls Electric and other individuals and busi­ career path as well as juggle the dif ferent Club afterschool program, known as the nesses—will be installed in the individ­ demands that come with being a work­ Brain Factory, is designed to sharpen ual family units of residents who have ing parent. skills and enrich children’s sense of completed the center’s computer orienta­ wider possibilities. The program is tion program. These residents will be Transportation solutions. Housing drawing growing numbers of resident given the option of taking additional authority staff and resident representa­ youngsters. Field trips introduce older courses at nearby junior colleges. tives, working with the East Bay Asian youth to opportunities for higher educa­ Local Development Corporation and the tion and training. East Bay IDA Collaborative, embarked on a demonstration project a year ago to More than 150 youth participate month­ test a novel concept—the use of individ­ ly in onsite programs aimed at building ual development accounts to enable self-esteem and confidence and improv­ families to save for a family automobile ing school readiness. Teachers report and insurance. This type of account was that students participating in these pro- developed as a practical incentive to grams are more attentive in class, hand help families in poverty save toward a in completed homework consistently, home, education, or family business and appear more willing to speak out Partnership with Boys & Girls Club pr ovides summer recreation startup. Under the program, eligible appropriately in class. Improved test and practice in social skills for Lockwood childr en. individuals or families can set aside up scores at nearby elementary and high to $500 a year, which is matched two- schools are partly attributed to the pro- In July 1999 Lockwood Gardens’ long- to-one by a consortium of foundations gram. During the past 3 years, nine awaited new 10,400-square-foot multi- and local banks as part of the banks’ teenagers living at Lockwood and other purpose building opened its doors. In compliance with the Community Oakland HOPE VI sites graduated from addition to a new computer lear ning Redevelopment Act. high school and are attending 4-year center, it brought together under one colleges, including New York University, roof the satellite offices of Head Start, Since outstanding fines or warrants—or the University of California, California the Boys & Girls Club, and the Bay Ar ea inability to pass the written test for a dri­ State University, Santa Clara University, Urban League. The building also houses ver’s license—form barriers to obtaining a Occidental College, and Mills College. a city-funded, resident-run year-round current driver’s license for some residents, One student was valedictorian of her lunch program for 150 youth, onsite the housing authority is working with high school class. offices for resident services staff, mainte­ police and the city of Oakland to addr ess nance and security staff, the resident these problems. The housing authority is Computer training for residents. To council office, and meeting rooms. also exploring the development of jitney meet the wide range of computer-related or shuttle services to help residents com­ interests expressed by residents, the mute to jobs around the city. housing authority identified a number of Bridging Cultural Barriers service providers willing to provide on- Linking Lockwood youth with opportu­ One challenge of community building at site training in software programs, using nities in the larger community. The Lockwood is the existence of different the Internet, and computer program­ HOPE VI program, in conjunction with ethnic groups, cultural traditions, and ming and repair. The Oakland Citizens the East Bay Conservation Corps and languages—with the consequent poten­ Committee for Urban Renewal, which the Fruitvale Community Collaborative, tial for misunderstanding and conflict. has already established working partner- created jobs for some 80 neighborhood The residents of Lockwood Gardens are ships with several area companies, is youth in a variety of community

Chapter 2 35 HOPE VI: Community Building Makes a Difference

76 percent African American, 22 percent the offsite families, including job train­ and they have priority over other appli­ Asian, 1 percent white, and 1 percent ing, English as a second language, GED cants. But they must meet a new set of Hispanic. The Asian residents speak preparation, life skills, and other train­ standards established by Lockwood several different languages, including ing. A quarterly newsletter, Staying In Gardens residents, including more Chinese, Laotian, Vietnamese, and Touch, of which six issues have now stringent rules on timely rent payment. Cambodian. It was difficult to involve appeared, goes out to all original Housing authority staff make home visits Asians in community planning and Lockwood Gardens families. Written to families requesting to return to assess problem solving, because most of them by both staff and residents, it enables housekeeping and maintenance habits. seemed to seek a low profile. these families to keep up with new Police records and recent rent payment developments and opportunities at histories are also checked. To help Asian residents take a greater Lockwood Gardens, as well as news of role in the community, the housing old friends and neighbors. Staying in authority worked with Asian Community Lockwood’s Community Policing Touch contains profiles of residents, Mental Health Services, which now pro­ household safety tips, information Program vides individual and group counseling about new recreational or vocational to youth and children to develop confi­ In the late 1980s, Lockwood Gardens programs at Lockwood, and progress dence and enhance self-esteem. Through was the most crime-ridden of Oakland’s reports on the renovation process. home visits and town meetings, the public housing developments. Under agency encourages residents to become HOPE VI, Lockwood Gardens residents involved in community affairs and pro­ At the beginning are experiencing the full benefit of a vides them with translation services. community policing partnership, first of HOPE VI, residents introduced in the early 1990s, under The Asian community group also offers which OHA’s own security force is expressed concern weekly classes in citizenship and English headed by an officer of the Oakland as a second language. It is attempting to about whether the Police Department. identify some resident leaders with good English language and social skills who 140 families who left Police Corporal Malcolm “Jerry” Williams opened the first community can serve as spokespersons among Asian their homes in the first residents and between Asians and other policing office in Lockwood Gardens in residents. Multicultural potlucks, organ­ phase of construction 1992. For 7 years before being assigned to Lockwood, Williams had been a ized by the residents’ association, pro- would be cut off from mote mutual respect and social tough, by-the-book cop. At that point, interaction among ethnic groups. the opportunities devel­ he decided the only way he was going to make community policing work was to oping onsite and in change his traditional approach and Resident Relocation the community. mindset.“The only time most people in At the beginning of HOPE VI, r esidents neighborhoods like this ever see a expressed concern about whether the policeman is when he comes to arr est 140 families who left their homes in the Staff also helped families displaced by somebody,” Williams comments. To first phase of construction would be cut renovation to find other housing. Fifty- counter this impression, Williams off from the opportunities developing three families took the option of Section spent a year just getting to know the onsite and in the community. The con­ 8 vouchers and moved on to subsidized residents, playing with the children, cern was intensified when, after con­ private rentals. OHA has a policy of and talking to people. placing Section 8 facilities across a struction had begun, a dispute with the “I tried to be nonjudgmental. I didn’t broad area, rather than concentrating contractor stopped all building progress criticize the things they were doing or them in a few neighborhoods of the for almost 2 years. what seemed to make sense to them. city. The remainder of the Lockwood Even drugs. They believed drugs were OHA has made a concerted effort to families chose to relocate elsewhere in helping them get money and so forth. track and stay in touch with the 140 public housing. former Lockwood families. It offered all But as their innate wisdom about the HOPE VI-funded supportive services to Relocated families are eligible to move harm these activities were doing to back as new units become available,

36 Chapter 2 HOPE VI: Community Building Makes a Difference

themselves and the neighborhood’s chil­ dren would surface in conversation, I quietly affirmed their good sense. They Table 2.2 had to begin to see it for themselves before they could want to change.” Perception of Changes in Feelings of Safety By the following year, residents were Among Oakland Public Housing Residents, helping Jerry—as they now called him— 1996 and 1999 put up wanted posters with the pictur es of the four drug dealers who formerly Percentage Agreeing: controlled the neighborhood. Armed Comment 1996 1999 with Williams’ personal cell phone num­ “I feel safe alone at night inside ber, they would call him at all hours, my apartment.” 45 86 even at home, with tips. “I feel safe alone at night outside “You can’t get emotionally involved my apartment.” 45 65 when somebody is angry and cussing at “I feel safer living in my building you,” says Williams, who is a certified than I did 3 years ago.” 55 78 drug expert with a college minor in psychology. “You need to step back and Source: Oakland Housing Authority Drug Elimination Pr ogram Report 1999 listen—to feel what’s going on behind the words. You can’t let your ego get in they now feel safe alone at night inside Reducing the crime rate in Lockwood the way. You need to try to see the their apartments—up from 45 percent Gardens won Lockwood and OHA whole picture.” The approach has paid in 1996 (table 2.2). More than three- excellent press from the local media off. Small children and young people fourths (78 percent) said they feel safer and good will from City Hall, which crowd around his car when Williams living at their housing site than they had identified the development as a pri­ drives into Lockwood Gardens each did just 3 years ago. ority problem area. Public perceptions morning. Their parents see that. An of Lockwood Gardens began to change “You see people sitting on their por ches important change has occurred in for the better, and all this led to now,” says Brown. “It’s a regular commu­ Lockwood Gardens. The cop on the increased cooperation from government nity now. A poor one, but a r egular beat has become a role model. and other agencies. community.” This new perception of Williams has been teaching other officers security has been key, she says, not only “People are coming to us now,” says on both the housing authority security to getting residents to come out to meet­ Brown, “and telling us they want to force and the Oakland Police Depart­ ings and get organized, but to getting work with us.” ment how to use the Lockwood outside organizations to come in and approach at other public housing sites, partner with them around those concerns. while the police department has provid­ Changing Lives ed critical training and support. There have been no homicides in Lock- wood Gardens in the past 7 years. Drug- HOPE VI is changing lives at Lockwood HOPE VI reconstruction included related crimes and other incidents have Gardens. The following are examples of enhanced physical security measures, been substantially reduced. According to progress made by summer 1999: including improved street lighting, secu­ police statistics, 24 assaults were report­ ■ Fifty-nine residents were employed rity fencing around the perimeter of ed in Lockwood Gardens in 1997, 8 in as part of the HOPE VI ef fort. the development, and limited entry to 1998. The incidence of drug possession ■ Thirty-five residents completed a Lockwood Gardens. Just as important, and sales fell from 63 to 10. Between preapprenticeship course in the residents began to show a growing 1995 and 1997, the incidence of theft building trades. At least 30 have willingness to take responsibility for and larceny fell from 23 to 5. In the since found jobs in construction. their own community’s safety and same period, the number of cars r eport­ quality of life. ed stolen declined from 18 to 6, and ■ Thirty-six residents passed their In a focus group of 56 public housing robbery fell from 5 to 1. GED tests. residents in Oakland, 86 percent said

Chapter 2 37 HOPE VI: Community Building Makes a Difference

■ Forty-eight residents passed the education, and parenting support in community service projects such U.S. citizenship test; 20 were sworn services through Lockwood’s Parent as the Fruitvale storefront façade in as citizens. Empowerment Program, initiated renovation program are acquiring and staffed by residents with the employable skills, self-confidence, ■ Nine teenagers living at Lockwood support of the Bay Area Urban the ability to work with others, and other Oakland HOPE VI sites League and United Way. and a sense of connection to graduated from high school and are the community. now attending 4-year colleges. ■ Eighteen residents graduated from leadership training courses; ■ Thirty-one public housing residents Other data tell a story of more personal 52 Vietnamese and Cambodian completed an entrepreneurial train­ but, for many residents, equally impor­ residents improved their English ing course. Although most have not tant strides: language skills. yet started a business, participants ■ Thirty-eight parents received coun­ say they feel more empowered and ■ Sixty youth hired by the East Bay seling, mentoring, life skills, budg­ have gained self-esteem have become Conservation Corps to participate eting, self-awareness, nutrition more confident, are more comfort- able exercising leadership, and trust more in the “establishment.” Exhibit 2.6 Preapprenticeship Training How the Preapprenticeship Program In 1995, OHA was one of 21 housing Changed Lives authorities that were awarded a Resident Apprenticeship Demonstration Program— Dolly Collier says her life has changed dramatically as a r esult of participating a $250,000 HUD grant. This new pr eap­ in the preapprenticeship program. A former welfare mother with three children prenticeship program, designed for to raise and no marketable skills, she is now bringing home a r egular paycheck young workers ages 17 to 24, was as a working apprentice on her way to a long-term car eer in the building trades. intended to prepare low-income and What is more, she finds she has become a r ole model, not only to her childr en public housing residents for lifelong but also to her neighbors, several of whom have since enr olled in the program. careers as skilled tradespersons earning Collier found the training program itself a life-altering and maturing experience. a living wage. The carpenters’ and Daniel Wright was, by his own description, “a high school washout” with no painters’ building trade labor unions particular life plan, who seemed headed for tr ouble. In fact, it took more than agreed to provide the instructors and one try and encouragement from two people who believed in him—his con­ give priority consideration for employ­ struction trade skills instructor, Ted Strong, and a Lockwood neighbor, Annette ment to skilled graduates of the pr ogram. Clark—for Daniel to get through Lockwood’s preapprenticeship program. In the Nationally, the program has placed 225 end, he grew to take so much satisfaction in what he was lear ning about tools of its graduates in construction jobs. and construction processes that he willingly attended part of another session to Lockwood Gardens’ program draws on make up some of what he had missed. the two union locals, aided by the plan­ Today, Wright surveys the building site on which he is working to note the ning and technical assistance of the growing number of new homes he has had a part in building. He is looking America Works Partnership: Working forward to the day, about 4 years from now, when he could be making $27 an Together for Jobs™. The America Works hour. But he also says that someday he might like to go back into the classr oom Partnership is an independent national to teach construction. At the end of the shift he heads home for dinner , deliber­ nonprofit organization that fosters part­ ately avoiding some of his old pals who just want to “hang out.” He knows he nerships with federal agencies, national needs to be clear-headed tomorrow morning when he presorts the sections of foundations, and other organizations to wood and other materials for the carpenter whose shoes he’d like to fill some- bring employment to Oakland and other day. “It makes me happy to see something I’ve built,” W right confides. “I never cities. Other community partners of the experienced anything like this before. And at the end of the week,” he flashes a Lockwood Gardens program include the warm smile, “there’s a paycheck.” Oakland Unified School District, which

38 Chapter 2 HOPE VI: Community Building Makes a Difference

provides students with help in GED and a center for afterschool activities Gardens, but, at the residents’ insistence, preparation, and the state of Califor nia, and adult education. Residents of the it extended its services beyond Lock- which operates certification programs surrounding community also take part wood residents to 100 pregnant women in lead abatement and hazardous waste in the educational, recreational, vocation­ living on welfare or low incomes in other removal. The 12- to 15-week program al, and supportive activities of the village distressed neighborhoods. combines classroom learning, hands- center at Lockwood Gardens. The Lockwood Gardens has ceased to be a on experience, life skills, and work- Lockwood village center also provides a base for crime and drug activity that readiness training. comfortable gathering place for various spreads out to affect the whole neighbor- community-building activities. Of the more than 35 graduates from hood. Indeed, Lockwood’s successful Lockwood Gardens’ first four America drug-elimination efforts and anticrime Works classes—three-quarters of whom effort have served as a catalyst for the were high school dropouts with poor housing authority’s overall community career prospects—31 percent are now policing strategy, resulting in reductions employed and earn between $10.40 and in crime and drug-related activity in $30.50 per hour. Most have entered several neighborhoods. The success of union apprenticeship programs in Lockwood Gardens’ community policing painting, drywall, and carpentry. and antidrug effort, along with its other community-building and outreach In April 1998 the Oakland and Miami activities, led the city of Oakland to housing authorities were selected from establish a Weed and Seed program in 21 participating housing authorities to Workers revitalize Lockwood Gardens, Oakland. the area. take part in a new five-city training ini­ tiative overseen by the America Works The impact of HOPE VI and the spirit of A newly formed village council—includ­ Partnership. Oakland’s project coordina­ community being fostered at Lockwood ing representatives from Lockwood, tor, Donna Levitt, is working to develop Gardens are being felt by the surround­ neighborhood residents, and community sustained community and institutional ing community as well. The HOPE VI organizations—convened to identify commitment, building additional part­ grant that transformed Lockwood also community needs such as training in nerships with the Port of Oakland and supported activities in Coliseum Gardens conflict resolution, parenting skills, and the Building and Construction Trades and the Lower Fruitvale neighborhood. how to find jobs is planning further ini­ Council of Alameda County, and work­ Chestnut Courts, another Oakland pub­ tiatives. HOPE VI funding will enable ing with area contractors, labor unions, lic housing project, received a $400,000 the center to expand its activities beyond and service providers to help Lock- planning grant in 1995 and a $12.7 the school to other locations in the com­ wood’s graduates get and keep well- million HOPE VI grant in 1998. New munity, according to Ben Fraticelli, exec­ paying construction jobs. businesses are springing up in Fruitvale, utive director of the Community Health about 2 miles from Lockwood, with Academy at Havens Court Middle plans for erecting housing and a commu­ School. Fraticelli, a community liaison Creating Change in the nity center adjacent to the nearby BART with the University of California at Larger Community station. Meanwhile, the housing authori­ Berkeley School of Public Health, co­ ty, the Spanish Speaking Unity Council, The housing authority leveraged com­ ordinates the village center activities. munity and Oakland Public Schools BART, and the city have come together support to turn Havens Court Middle The housing authority, at the urging of around a new transit village project, School—located just across the street Lockwood’s resident council, helped to which will include scattered-site public from Lockwood Gardens—into a village establish Tender Loving Care, a health- housing and a childcare center for com­ center. A village center is not a physical monitoring and risk-factor-awareness muting parents. In the Fruitvale area: program for pregnant women that has place but an approach that helps a ■ The Fruitvale Community been shown to lower rates of hyperten­ community conceptualize bringing a Collaborative (a subsidiary of the sion, cigarette smoking, child maltreat­ variety of supportive activities under one Spanish Speaking Unity Council) ment, and subsequent pregnancies. umbrella. Havens Court has become a is conducting community organiz­ The program is based at Lockwood beacon school—a safe haven for youth ing activities.

Chapter 2 39 HOPE VI: Community Building Makes a Difference

■ La Clinica de la Raza and the could make us less dependent, in the “Public housing used to exist as kind of Spanish Speaking Citizens long run, on HUD subsidies.” an island, cut off from the rest of the Foundation are jointly implement­ community,” says Carey. “Part of our “In the old days we would simply hir e ing an “It Starts Now” program in new mission is not only to change that an architect to design the job and a con- Fruitvale, emphasizing good work image but that reality.” tractor to execute it. Today we hire a habits and employable skills. developer who will, in turn, hire the ■ The Spanish Speaking Unity architect and put together the team that Council is providing self-employ­ can realize the project. We act as the Milwaukee— ment and business development overseers, keeping an eye on the health assistance in Fruitvale. of the project, its marketability, and so Family Resource on. We’re becoming asset managers.” ■ Eighty-three units demolished at Chestnut Courts are being replaced Center Combines by 120 units—some of which will Many Services To be reserved for homeownership or … the housing authority rental at income levels above the also finds itself doing Foster Employment very low-income cutoffs for public housing families. business these days ■ Fifty-four new units of scattered-site with “people we’ve The Challenge housing in three locations have been never dealt with illside Terrace was a neighborhood brought online in recent months. before, such as state Htrouble spot. Drug dealers operat­ ■ Eighty-three new jobs and 36 new ed an open-air market, posting lookouts businesses were created in the tax credit and bond at the project’s two entrances and shoot­ Fruitvale business district. finance people, lawyers, ing out streetlights to mask nighttime illegal activities. Cul-de-sacs created by and financial experts …” street closings that were part of the orig­ Changing the Housing inal site design further baffled pursuit. Authority’s Way of Doing Residents could not order pizzas for Business The screening of potential residents is delivery to their homes because drivers also a new function of the housing were reluctant to deliver there. “We’re certainly more focused these days authority. It also provides leadership on the marketability and viability of our Hillside Terrace’s reputation was so bad training for residents and must consider housing product on a long-term basis that in November 1992 the housing services such as childcare and job- under HOPE VI,” says Ralph Carey, authority had to offer a vacancy to 200 readiness training. “HOPE VI has director of housing management of the families before finding one that would opened up opportunities we hadn’t had Oakland Housing Authority. “This is a venture to move there. “Most families on the resources to develop before,” says big change from the old fix-it-up-for-a- the waiting list would rather go to the Carey. But it is often up to the housing while mentality that once prevailed. bottom of the list and wait for mor e authority to go out and find the addi­ Nowadays we find ourselves thinking in than 10 years for another development tional resources to actually build a terms of programs that will make us less than accept one of the housing units at needed facility or provide an ongoing dependent or will open up new oppor­ Hillside Terrace,” recalls Ricardo Diaz, service onsite. tunities for the residents.” executive director of the Housing OHA also finds itself acting as the br o­ Authority of the City of Milwaukee. According to Carey, the housing authori­ ker between residents and all manner In 1995 Hillside’s vacancy rate was ty also finds itself doing business these of service providers and other outside 6.5 percent—twice that of the housing days with “people we’ve never dealt with resources—including the city of Oakland, authority as a whole. before, such as state tax credit and bond with which it has become engaged in a finance people, lawyers, and financial Despite the strong local job market number of collaborative projects, some experts who can put deals together that (currently less than 5 percent unemploy­ involving the larger community. ment), many Hillside residents had lost

40 Chapter 2 HOPE VI: Community Building Makes a Difference

touch with the expectation of employ­ Area Technical College; the Hillside ment and the culture of work. Approx­ Family Health Center; Daycare for imately 83 percent of the family Children, Inc.; and the Boys & Girls households had no earned income. The Club of Greater Milwaukee—use the median household income was $7,404, center as a base of operations to pr o- approximately one-third of the city’s vide employment and supportive median income. Welfare dependency services to Hillside residents and the was high. Seventy-eight percent of neighborhood. The expanded center households received some form of pub­ opened in September 1997. lic assistance—yet the state of Wisconsin ■ HOPE VI reduced the density and was about to adopt one of the toughest isolation of Hillside Terrace. The welfare-to-work measures in the country. housing authority razed 118 units, Housing authority leadership saw HOPE replacing 79 units in nearby scat­ VI’s main direction as helping residents Thanks to the Hillside Terrace Family Resource Center, Center tered sites. The reconstruction Manager Ann Wilson’s grandson gets a healthy start in life. to begin working right away and then upgraded interiors and exteriors, providing the ongoing assistance to as well as cable, electrical, heating, $9,353 to $12,346 per year. build skills and move up a car eer ladder. phone, water, and drainage systems. Hourly wages ranged from $7.00 Built in 1948 as housing for wartime The original through streets were to $12.17—an average of $8.25 workers, Hillside Terrace in the early restored. Green space was added per hour. 1990s was the most distressed project in and the development was config­ ■ Between September 1993 and the public housing inventory. Located on ured to create 12 microneighbor­ October 1996, Hillside’s resident the northeast side of Milwaukee, close to hoods, each with its own resident employment program helped to downtown but isolated by highways to mentor. Hillside Terrace has become place 139 residents in a variety of the south and west and light manufac­ a community asset and an attractive private- and public-sector jobs. turing facilities to the east, the 24.5-acr e place to live. In contrast to the During HOPE VI construction, 44 site encompassed 552 family units and a 200-to-1 turndown rate before residents worked with contractors at 44-unit highrise building for the elderly. HOPE VI, 152 offers were made Hillside Terrace. Four worked with Its hilly site was subject to flooding. to potential tenants in 1997 with contractors offsite. As many as 37 Despite almost $12 million of moder n­ only 6 refusals. residents worked with onsite com­ ization at Hillside between 1980 and ■ Between 1995 and 1998, the per­ munity agencies, such as the Boys 1994, the project was rated in only fair centage of Hillside’s heads of house- & Girls Club and Day Care for condition at the time of the HOPE VI hold who had some income from Children, Inc. grant. wages more than tripled, rising ■ Twenty-four residents gained work from 17 percent to 60 percent. experience through temporary “There was a savings of more than Hillside Terrace Today housing authority jobs, such as $1 million in TANF payments ■ Hillside Terrace’s 18-month resident About $3.2 million of the $45.7 to Hillside Terrace households employment coordinator position million HOPE VI grant financed between 1996 and 1999,” according and several janitorial slots. the transformation of the fortress- to Housing Authority Director like 1978-vintage Hillside Terrace Ricardo Diaz. ■ HOPE VI funding supported a dri­ Boys & Girls Club into the 29,000- ver’s education class, which helped ■ During the same period, the per­ square-foot Hillside Terrace Family 75 people to obtain their driver’s centage of households that were Resource Center. HOPE VI Amend­ licenses—leading some residents completely dependent on govern­ ment Funds added $1 million for to gain employment as drivers of ment supports dropped 31 points. supportive services. The housing school buses and other vehicles. authority’s community partners— ■ Between 1995 and 1998, the aver- ■ Between 1995 and 1997, reports of Maximus, a for-profit employment age wages of long-term Hillside serious crimes at Hillside Terrace services provider; the Milwaukee residents with earnings rose from fell by 40 percent—from 75 to 45.

Chapter 2 41 HOPE VI: Community Building Makes a Difference

How They Did It: The authority’s determination to holistically partnerships and keeping residents Many Roles of Hillside address all possible obstacles to self- involved, it was also necessary to meet sufficiency. While multipurpose commu­ W2 requirements for immediate out- Terrace Family Resource nity buildings may be found in many comes. The situation required a real bal­ Center public housing developments, this one is ancing act. It is possible that, because of unique in its strategic focus on the tran­ the W2 constraints for moving residents During the past 4 years, housing author­ sition to employment and self-sufficiency. to work within a tight timeframe, the ity staff have been working with resi­ HOPE VI program at Hillside developed dents, employers, and social service Milwaukee Mayor John O. Norquist as a more centralized operation than providers on barriers to work. “We commended the employment focus of it might have otherwise. The resident looked at all the issues that have histori­ the Hillside Terrace Family Resource organization, Hillside Family Organ­ cally prevented people on welfare from Center. “The center is an investment in ization, Inc., was incorporated as a going to work,” explains Diaz. “We tried the future of public housing residents,” 501(c)(3) nonprofit in 1995. The hous­ to address all the constraints we could he commented at the June 12, 1996, ing authority has long encouraged its think of—lack of education, inadequate groundbreaking. “It’s the kind of participation and provided support serv­ employment training, not knowing how government-community partnership ices to the group. During the early stages to look for a job, difficulties with day- that will help families get off welfare of HOPE VI, however, observers noted a care, and inadequate healthcare. We and get into the economic mainstream.” lack of resident buy-in, and it is possible tried to build a bulletproof program, so Removing obstacles to work had a spe­ that the necessary haste to comply with there could be no excuse for r esidents cial urgency in Wisconsin, a state that W2 curtailed the time available for not going to work.” launched one of the earliest and tough­ building broad support among residents. The programs at the Hillside Terrace est welfare-to-work laws in the country Three years after its opening, there is Family Resource Center, operating in 1997. Wisconsin’s TANF legislation— every indication that the new Hillside through partnerships with community often referred to as W2—provides only Family Resource Center is functioning as organizations, reflect much more than a 24 months of welfare payments in a life- intended (exhibit 2.7). The HOPE VI desire for convenient access to ser vices. time. Unlike many other states, however, community partners use the center as a The center exemplifies a specific ser vice once the Wisconsin clock began ticking, base of operations to provide employ­ strategy and provides a new structure of neither study toward a general equiva­ ment and supportive services to Hillside opportunity for residents. An attractive, lency diploma nor participation in most residents and others in the neighbor- modern brick structure built (literally) other general skills training programs hood. The three-story structure sits at around a preexisting youth recreation could halt its countdown. Given the the edge of the development—one facility, the center consolidates all the strict state interpretation of eligible entrance opening on the Hillside Terrace elements of the self-sufficiency program activity under Wisconsin’s W2 and a development, the other fronting on Sixth in one location and links residents to strong local job market (less than 5 per- Street—inviting participation from the the larger community. The center is the cent unemployment), the housing neighborhood beyond. physical embodiment of the housing authority emphasizes early employment. It works to help residents get into entry- The first thing a visitor sees when enter­ level, temporary, or subsidized jobs as ing the center is the “Wall of Work”—a soon as possible and then provides large wood and glass cabinet with an them with ongoing assistance to build ever-changing display of 8” x 10” color from there. photographs of Hillside residents at their jobs. Opposite this display is a r eception Wisconsin welfare reform put tremen­ area and building management offices. dous pressure on the housing authority In the words of Ann Wilson, a longtime as it implemented the HOPE VI pr o- Hillside resident who manages the cen­ gram. While the housing authority ter, it is a “resource-full building.” Education and training programs make Hillside Terrace’s worked through the process of forging closeness to downtown Milwaukee jobs a plus for r esidents.

42 Chapter 2 HOPE VI: Community Building Makes a Difference

Exhibit 2.7

Community Partners Operating in the Hillside Family Resour ce Center

Employment Services being fired, he or she is reworked into another employment In Milwaukee’s HOPE VI program, everything starts from slot,” Diaz explains. “Instead of focusing on the failur e, they the goal of employment and self-sufficiency. Maximus, a focus on the positive—‘you showed up for work twice last private-sector provider of job development and placement week, let’s see if you can show up for work thr ee times.’” services, partners with the housing authority, maintaining a satellite office with five employees on the thir d floor of the Vocational Education Hillside Family Resource Center. Maximus acts as the coor­ In collaboration with Maximus and the housing authority, dinating agency for TANF in Wisconsin and several other the technical college operates a computer lab in the Hillside states. Maximus staff perform skills assessments, provide Center. The onsite learning lab provides work-based skills motivation and job-readiness training, match residents to and transition services at convenient hours for residents of jobs, and keep placed workers in jobs thr ough followup. Hillside Terrace and its neighbors. The lab tailors lear ning The agency offers prescreened, work-ready jobseekers to its activities to a participant’s workplace, occupational interests, business clients. It also offers them federal tax credits as an and academic needs. Teachers at Hillside help participants added inducement. Clients with substance abuse issues ar e to enroll in additional courses at the Milwaukee Ar ea referred to a specialist in the main Maximus of fice. Technical College, which, although rarely used by residents The Hillside office’s three family employment planners serve in the past, lies within a few blocks of Hillside T errace. about 170 people through W2. Staff with clients who Nineteen students were enrolled in December, most of them receive only food stamps serve another 200 people. Most employed full-time under W2. They made use of the lab’s clients live in Hillside or within the ZIP Code that sur­ evening and weekend hours to ear n a GED or build specific rounds it. In addition, two county welfar e employees work vocational skills. out of the Maximus office, providing food stamps and Medicaid cards. Health Services Reflecting its community location, the atmosphere of the satellite office is warm and informal. “It is friendly—mor e The Hillside Family Health Center, operated by the interactive than our main office. You need the relationship Wisconsin Black Health Coalition and contracted thr ough to serve customers better,” comments Carl Johnson, a Mary Mahoney Health Services, provides free primary Maximus employment planner. Johnson, who grew up healthcare. The center is open Monday thr ough Thursday in northeast Milwaukee, volunteered to transfer to the from 9 a.m. to 7 p.m. and until 5 p.m. on Fridays. The Hillside office, where he serves his old neighborhood as health facility provides primary care, case management, pre- well as Hillside. natal care, screening and referrals, immunizations, health education, and home visitation. The nurse-managed clinic The housing authority also employs two r esidents as includes the services of registered nurses, nurse practition­ employment coordinators. They are responsible for reaching ers, physicians, medical assistants, and outreach workers. out to and following Hillside residents who, as Diaz com­ Medical staff saw and treated 929 visitors at the Hillside ments, seem likely to otherwise “fall between the cracks” of clinic in 1998. They referred three times as many visitors to the TANF system. Residents who are having difficulty find­ other medical facilities for needed treatment. Mary Mahoney ing employment because of criminal histories, a lack of job Health Services employs three Hillside residents as clinical history, or a lack of job skills ar e referred to temporary assistants or outreach workers. Two work at the Hillside employment agencies. These temporary agencies work with clinic and one works at Mar y Mahoney’s Metcalf Park residents to ease them into the workplace. “If the person 1 neighborhood clinic, about 1 /2 miles away. fails to show up or experiences other dif ficulties, instead of continued on next page

Chapter 2 43 HOPE VI: Community Building Makes a Difference

continued from page 43 serve Hillside Terrace and the surrounding community. The club, with its high-quality gymnasium and r efurbished facil- The Hillside Family Health Center has made a big dif ference ities, provides recreation, a safe place for youth to stay after in the quality of life and, in some cases, the dif ference school, and resources to build employment skills. The club between life and death. Evidence of this claim is the little offers programs for 3- to 12-year-olds from 3 until 7 p.m. grandson—only a few weeks old—who site visitors saw and for teens until 9 p.m.. Pr ograms include team sports, sleeping peacefully in Ann Wilson’s lap during an informal games, cultural activities, and field trips. The club empha­ meeting at the Hillside Center. Wilson explained that last sizes paths to employment through computer skills classes, year her diabetic daughter, who was pregnant, unexpectedly career development activities, and a job club. W ith 370 lost her job and health benefits—putting her unbor n child members, the club serves about 120 young people per day at serious risk. But the regular, free prenatal and postnatal during the school year and up to 320 per day during the care provided at the Hillside Family Health Center has kept summer. Although most club members live in Hillside daughter and grandson in good health. Terrace, about 20 percent come from the neighborhood. The Cerita M. Travis Academy, an alternative public school Daycare for Children that serves 60 fourth- through eighth-grade boys from across the city, operates within the Boys & Girls Club facility. A partnership with Day Care Services for Children, Inc., provides convenient daycare services to working parents at Hillside Terrace. The daycare center has its own entrance on Hillside Resident Council­ Sixth Street, which allows for easy dropoff for neighbor- Incorporated as a 501(c)(3) nonprofit in 1995, the Hillside hood children and Hillside residents alike. The daycare cen- Resident Council has offices at the Hillside Family Resource ter at the Hillside Family Center has enr olled 54 children, Center. The council puts on social events and pr ovides lead- about three-fourths from Hillside Terrace. Three of its ership training activities for residents. It helps Hillside low- employees live in the development. income families (employed as well as nonworking families) make ends meet through its clothes-closet program, food Youth Services pantry, and monthly bulk purchasing of groceries. By hosting a meeting every 2 months of agencies that ser ve The Boys & Girls Club of Gr eater Milwaukee—the facility Hillside residents, the council plays a key r ole in coordinat­ around which the Hillside Center was built—continues to ing services.

Changing Lives Lapham Park, a similar family develop­ residents with earnings rose from $9,353 ment nearby. Lapham Park residents to $12,346 per year. In Lapham Park, The Milwaukee Planning Council for participated in the housing authority’s the average pay for wage ear ners also Health and Human Services’ recent self-sufficiency programs in response to rose, although not as much—increasing evaluation of the HOPE VI program W2 but did not have HOPE VI funding. from $9,495 to $11,997. at Hillside Terrace offers evidence that the housing authority is creating a Between 1995 and 1998, the percentage During this period, the percentage of all mixed-income community by raising of Hillside’s family households with Hillside residents, with some income families up, not only by importing fami­ some income from earnings rose from from wages rose from 17 to 60. 27 percent to 69 percent—a 42-point lies that are already working. The study These dramatic contrasts reflect more gain (table 2.3). In Lapham Park, by analyzes the employment and wages of than life changes for individuals and comparison, the percentage of working 126 long-term residents, that is, current families residing at Hillside Terrace. families also rose under the influence of residents who have lived in Hillside They also reflect a change in community welfare reform and housing authority since before the HOPE VI program norms and expectations. In 1995 welfare efforts, but not as markedly—increasing began. Long-term resident families make dependency was far and away the norm from 23 percent to 39 percent. Wages up about one-fourth of all Hillside r esi­ at Hillside. Now the development has also increased. Between 1995 and 1998 dents today. The study compares their more families working and earning than the average wages of long-term Hillside progress with that of residents of on income support.

44 Chapter 2 HOPE VI: Community Building Makes a Difference

Table 2.3

Changes in Employment and Wages for Long-Term Family Households (Those Living at Hillside Terrace and Lapham Park During Entire 1995–98 Period) Long-Term Hillside Residents Long-Term Lapham Park Residents (n = 126) (n = 61) 1995 1998 Change 1995 1998 Change Percentage of families with some level of earnings 27 69 +42 23 39 +16 Average annual wage for working families $9,353 $12,346 +$2,993 $9,495 $11,997 +$2,502

Source: 1998 Evaluation: Hillside Terrace HOPE VI Urban Revitalization Demonstration Program, Planning Council for Health and Human Services, Inc., Milwaukee, WI, February 1999

The planning council’s findings reinforce and encourage agencies based in the past winter brought Hillside residents Diaz’s point that HOPE VI makes a dif­ family resource center to hire residents out of their apartments to help one ference and that the program is benefit­ to give them a start in the world of another clear walkways and steps. In ing families who lived at Hillside befor e work. Between September 1993 and summer, residents plant flowers in their the HOPE VI grant. “We took existing October 1996, the resident employment yards. “Hillside is neat and clean, even residents and increased their income,” program helped to place 139 Hillside the day after a garbage pickup,” Diaz says Diaz. “We are not importing fami­ Terrace residents in a variety of private- pointed out. “People will pick up a piece lies that are already working. Our effort and public-sector jobs. During HOPE VI of paper off the ground. This is truly a is to upgrade our existing resident popu­ construction, 44 residents worked with real community now.” In responding to lation with jobs.” contractors at Hillside Terrace, while the Planning Council survey, more than 4 worked with contractors offsite. As 1 in 10 residents said they were satisfied As Hillside families make the transition many as 37 residents worked with onsite living at Hillside Terrace and that the from welfare to wages, the housing community agencies, such as the Boys & development was now a better place authority disregards increases in earned Girls Club and Day Care Services. The to live. income when calculating rents. Many program also provided work experience families that paid 30 percent of their for 24 residents through limited-term income for rent when on welfare are jobs, such as the 18-month resident Changing the Larger now earning more than their old welfare employment coordinator positions. Community checks and paying considerably less Another such project, the C-Team, hired than 30 percent of their total income Hillside Terrace is no longer considered residents to facilitate HOPE VI construc­ toward rent. For households that experi­ a neighborhood eyesore or breeding tion by taking over nontechnical tasks, ence job loss, the housing authority may ground for crime. The development can such as organizing tenant meetings. The temporarily allow a minimum rent of now work with, rather than against, its housing authority used some HOPE VI $50. However, the housing authority locational pluses. These neighborhood funding for a driver education class, does not reduce rents of residents who assets include the development’s close which helped 75 people obtain their dri­ have been sanctioned for failure to proximity to downtown, the Union ver’s licenses. This soon led to employ­ comply with TANF regulations. Sports Annex Stadium at Marquette ment as school bus drivers for some University, and the gothic beauty of the Although the goal is for residents to residents. adjacent St. John’s Lutheran Church. successfully navigate the citywide job There are many small signs that commu­ HOPE VI strengthened a neighborhood market, the housing authority tries to nity norms have changed since HOPE VI asset by transforming the existing Boys strategically use housing authority jobs revitalization. A heavy snowstorm this & Girls Club into the Hillside Terrace

Chapter 2 45 HOPE VI: Community Building Makes a Difference

The decline in crime is reflected in com­ projects. The effects have been dramatic. munity perceptions of Hillside. Neigh­ The housing authority recently exam­ borhood organizations now come to ined increases in income from wages of Hillside’s Family Resource Center to 1,319 family households that lived in hold their meetings. One meeting room public housing between January 1996 is decorated with a set of posters— and January 1999. The average house- graphics celebrating Milwaukee’s different hold income of this group increased neighborhoods, such as Concordia, about 30 percent, rising from $10,122 Riverwest, and Tippecanoe. One of the to $13,206. The total wage income mor e neighborhoods commemorated along than doubled, going from $3.9 million with the others is the new Hillside to $9.6 million. The number of house- Terrace. Pizza vans and ice cream trucks holds with some income from wages now bring their wares into Hillside increased more than 80 percent, from Terrace—indications that public fear of 373 to 674. The number of households the development has subsided. During a with income above the poverty line r ose recent NCAA regional basketball tourna­ by more than half, from 313 to 476. ment held at the nearby Union Sports Resident Gladys Vaughn displays entrepreneurial crafts in her The norms around work for public renovated Hillside Terrace apartment. Annex, residents who knew Hillside housing communities have changed. Terrace in the old days were amazed to Says Diaz: “At our forms meetings for Family Resource Center. HOPE VI pro­ see so many late-model cars crowding new applicants, we tell everyone that we vided $3.2 million for renovations to the their curbsides. Milwaukee residents expect them to work and pay r ent.” A original 1970s-era club. who once would have shied away fr om recruiter for Pinkerton attends these leaving their cars at Hillside Terrace had As part of the physical rehabilitation meetings and several public housing parked there to walk to the game. effort, apartments have been modern­ applicants have been hired as a result ized, exteriors and grounds made attrac­ Over the past few years, dozens of news- of their attendance. tive, and grading and flooding problems paper articles have carried the stor y of There are indications that the HOPE VI mended. Redevelopment reduced the the HOPE VI redevelopment and the experience has begun to shape policies number of units by 118 (while r eplacing positive changes occurring in the lives of the housing authority as a whole. 79 of these with nearby scattered sites), of Hillside residents. The highly visible According to Diaz: and opened up sight lines to Milwaukee’s success of Hillside Terrace has also dramatic downtown skyline. To encour­ created intangibles, Diaz pointed out. ■ The housing authority is downsiz­ age organization at the block level, the “Hillside changed the perception of pub­ ing its projects—getting away from development was divided into 12 mini­ lic housing. People network, particularly the larger projects with their con­ neighborhoods—each visually recogniz­ in a small town like this. They know centrations of poor people—such able by outdoor trim color and symbol, each other, talk to each other. HOPE VI as the original Hillside Terrace. such as a circle, triangle, or square in the may open doors for residents in ways we ■ The housing authority works to front grillwork. The housing authority are not even aware of.” appointed a resident as a mentor or out- include a recreation or community reach worker in each neighborhood. center in each development as a Changing the Housing focus for self-sufficiency activities. Crime has fallen markedly since the ■ beginning of the HOPE VI program. Authority’s Way of The housing authority has adopted Between 1995 and 1997, reports of seri­ Doing Business policies of ceiling rents, earned- income disregards, and a minimum ous crimes, including robbery, burglary, The housing authority’s holistic response assault, car theft, and murder, declined rent of $50 per month. Policies on to welfare reform, which was developed ceiling rents—“a lesson learned at from 75 to 45 cases. The incidence of at Hillside under the HOPE VI pr ogram, aggravated assault fell from 6 cases to 1, Hillside,” according to Diaz—and has helped to expand and refine services minimum rents are applied burglary from 20 cases to 9, and r obbery for residents at other public housing from 4 cases to 1. throughout the housing authority.

46 Chapter 2 HOPE VI: Community Building Makes a Difference

■ The experience of managing the Lafayette Courts—home to 2,227 people large, discretionary HOPE VI grant in six highrise and 17 lowrise buildings— has encouraged housing authority was a nightmare for its almost 100- staff to think “outside the box.” For percent African American occupants and example, in planning a large rede­ the Housing Authority of Baltimore City. velopment project, the housing Gangs and drug dealers dominated the authority is considering taking on project. People with jobs were scarce. for-profit partners, using $26 mil- The average annual income was $6,096, lion in tax credits. It is important, and 86 percent of families had no Diaz believes, to hire staff who can earned income. The neighborhood Baltimore’s Lafayette Courts before revitalization. be “flexible and accommodating.” lacked amenities such as recreational facilities and grocery stores. As the ■ The systemwide self-sufficiency The conditions at Lafayette Courts largest and oldest of the city’s four pub­ programs in the context of tough, and four other highrise buildings led lic housing family highrises, Lafayette statewide welfare reform have Baltimore Mayor Kurt Schmoke’s Family Courts was a maintenance disaster, with made a difference. People living High-Rise Modernization Task Force to antiquated heating and plumbing sys­ in Milwaukee’s 22 public develop­ declare in 1992 that “highrise living was tems, high maintenance costs, and back- ments earned an additional $52 not conducive to nor supportive of fami­ logged work orders. million in wages in 1997. ly living.” As a major landlord and social The predominantly African American service provider on the East Side, the The transformation of Hillside Terrace East Baltimore community that sur­ Housing Authority of Baltimore City was has given the housing authority a public rounded Lafayette Court was an old committed to Lafayette Courts and the face in Milwaukee, according to Diaz. industrial area—about 30 percent resi­ larger community. In 1993 the housing Public housing in Milwaukee, due to dential, scarred by vacant warehouses authority applied for and received a its reputation for being well-managed, and storefronts. Though near potential $50 million grant to transform Lafayette has tended to have a relatively low resources such as Baltimore’s downtown, Courts into the HOPE VI community of profile. “HOPE VI made us a player,” Johns Hopkins University, and Johns Pleasant View Gardens. Diaz added. Hopkins Hospital, the community was physically and culturally isolated. Several Pleasant View Gardens major thoroughfares crisscrossed the Baltimore— area, fragmenting it. Today Public housing was home to nearly half The revitalized HOPE VI community of Providing of all East Side residents. In a relatively Pleasant View Gardens consists of 228 small area there were six public housing attractively designed townhomes—201 Comprehensive projects, including Lafayette Courts, public housing units and 27 for-sale Social Services Somerset, Douglass, the Broadway, homes for low- and moderate-income Perkins Homes, and Flag House Courts. families. A highrise building located on In 1990, in the two census tracts imme­ a central circle, called New Hope Circle, contains 110 units designated for the The Challenge diately surrounding Lafayette Courts, more than half of all households lived in elderly and space for a variety of ser vices. roken windows. Stopped-up toilets. poverty and more than one-fourth The 16,400-square-foot NOAH building, BEmpty apartments controlled by drug received public assistance. Less than Pleasant View Gardens’ Community dealers. Having your purse snatched as you half of the adults graduated from high Center, houses the property manage­ walk down the hallway. Bullets flying into school. Less than half of the working-age ment offices, the community and sup- your apartment as you sit down to a family adults were in the labor force. Violent port center, community meeting spaces, meal. Passing boarded-up stores and dodg­ crime rates were approximately twice a childcare center, a learning lab, and a ing cars as you run across Route 40 to get that of the whole city. The crime rate Boys & Girls Club. to the grocery store. Not knowing a single against property was three times the ■ Across the street from Pleasant View neighbor who works. city’s rate. Gardens and accessible to the entire

Chapter 2 47 HOPE VI: Community Building Makes a Difference

neighborhood is the new Weinberg Pleasant View Gardens and serves offered. Comprehensive planning—the Family Health Center. Built by the many more from the neighborhood. initial planning process and the baseline Greater Baltimore Medical Center, assessment—allowed the housing ■ A new police substation in the it serves residents of the HOPE VI authority to strategically bring resources NOAH building, built with HOPE community and the East Side. to the development and the surrounding VI funds, is staffed by community neighborhood. The HOPE VI applica­ ■ Since the HOPE VI revitalization, support officers from housing tion, developed through the input of the median household income at authority police services. Cooperative city officials, residents, and community Pleasant View Gardens has risen by police-community efforts have stakeholders, brought together diverse more than $2,500, while the num­ reduced crime. In 1994 the housing viewpoints for a common purpose. The ber of household heads earning authority police at Lafayette Courts initial planning process involving all wages increased from 14 percent to made 145 arrests and received stakeholders—staff, onsite service 26 percent. 2,235 calls for service. In 1998 at providers, and residents—strengthened Pleasant View, police made 7 arrests ■ Between May 1998 and May 1999, relationships among these groups. Today and received 449 calls for service. 62 residents participated in Pleasant these stakeholders continue to meet Between 1994 and 1998, arrests at View’s preparatory class for the regularly to discuss issues related to the development dropped 94 per- GED. The computer class had 60 community and supportive services. cent and calls for service dropped participants. Nonetheless, the time pressure of the 75 percent. ■ Fifteen residents obtained construc­ mayor’s task force and Baltimore’s East ■ A drug store and a grocery store tion jobs on the HOPE VI site Side redevelopment effort as a whole recently opened near the Old through the STEP-UP program. meant that HOPE VI partnerships had Town Mall, a block and a half to be formed quickly and unilaterally by ■ Thirty-one residents have participat­ from Pleasant View. Other stores the housing authority. The tradeoff was ed in the Family Tree parent train­ are scheduled to open soon. that there was not as much grassroots ing program. ■ All 27 for-sale units constructed at resident involvement as there might ■ The Intergenerational Program has Pleasant View Gardens have been have been otherwise. Participation in paired 12 young, single parents sold. Former public housing resi­ a citywide plan spurred the redevelop­ and their children with 12 elderly dents purchased 13 of those units. ment of Lexington Terrace along with residents. other affected public housing properties ■ The three resident-owned business­ on the East Side. However, these large- ■ The Boys & Girls Club has enlisted es created during construction are scale efforts also raised fears of displace­ 157 out of 203 school-age youth at still thriving. ment among Lexington Terrace residents and neighboring communities. How They Did It: “HOPE VI has allowed us to look at the Coordinating Success family as the wagon. We can ask what we need to move the family along,” “HOPE VI gave us a new way of looking comments Rosemary Atkinson, supervi­ at an old situation. It allowed us to step sor of the Family Self Sufficiency (FSS) back and look at what ser vices we Program at Pleasant View Gardens. The offered, to offer them in a more compre­ FSS supervisor oversees community hensive way and to look at a community partners who provide services, operating as a whole,” says Thelma Millard, direc­ under a formal memorandum of under- tor of the Division of Family Support standing with the housing authority. In Services. “We took the leftovers and keeping with the concepts of community made a good soup. Things just worked building, HOPE VI has enabled the better together, were more coordinated.” housing authority to develop stronger The legacy of HOPE VI at Pleasant V iew partnerships with residents and commu­ nity organizations. The resulting changes Baltimore’s Pleasant View Gardens after HOPE VI revitalization. Gardens lies not just in which services are offered, but how those services are in policies and attitudes have allowed

48 Chapter 2 HOPE VI: Community Building Makes a Difference

Exhibit 2.8

Community Partners in the HOPE VI Pr ogram at Pleasant View Gardens

Employment and Training Family Support Services ■ The PACE program offers intensive, targeted services to ■ The Weinberg Community and Family Health Center, residents who have a long histor y of unemployment, located across the street from Pleasant View Gardens, little or no work skills, or multiple barriers to employ­ provides primary healthcare for children and adults, ment. The program is a joint effort of the housing dental care, eye care, substance abuse and mental authority and the Baltimore Office of Employment health services, HIV testing and case management, Development. The housing authority provides funding social services, and an onsite pharmacy. The health cen­ and the employment office provides staff. PACE work- ter, which opened in 1998, is operated by the Gr eater shops include goal setting for individuals and families, Baltimore Medical Center. It serves Pleasant View and job readiness, finding and keeping a job, and building the surrounding community. on personal strengths. PACE gives priority to residents ■ The Pleasant View Gardens Child Development Center who may lose their jobs during the first year , moving is a comprehensive educational program for children quickly to find them new employment. PACE also ages 2 to 14 that ser ves the neighborhood as well as offers career development services. residents of the development. Programs are being ■ STEP-UP is a yearlong program supported through developed for infants. The center also of fers a child housing authority program funds, such as the comp care teacher certification program for residents who grant or the drug-elimination program that teaches resi­ want to become professional childcare workers. dents construction skills through the rehabilitation of ■ The Boys & Girls Club, located in the multipurpose public housing developments. After classroom training, building, provides recreational, athletic, and education­ participants are assigned to apprenticeships with skilled al opportunities for children and youth in Pleasant trade workers in a variety of ar eas. The program’s goal View and the surrounding neighborhood. This is for graduates to enter union appr enticeship programs state-of-the-art facility was built with HOPE VI funds at the end of their STEP-UP year. and is operated by the Boys & Girls Clubs of Central ■ The Entrepreneurship Program of the Council of Maryland. Economic Business Opportunities, started in early ■ The Intergenerational Program couples elderly families 1999, has provided technical assistance to five former from the midrise building at Pleasant V iew Gardens Lafayette Court residents interested in starting their with young, single parents and their children to pro- own businesses. vide intensive support and assistance. ■ In the Community and Support Center, FSS staff pro- ■ The Family Tree’s Positive Parenting program is a vide basic education classes, a computer lear ning lab, 12-week parenting education program that teaches and a book-lending service. Staff work out individual­ parenting skills and new ways to handle anger and ized learning plans for residents to learn computer stress. The Family Tree is a nonprofit organization skills and study for the GED. that works with parents and children to prevent child ■ Civic Works partners with the housing authority and abuse and neglect. the Boys & Girls Club to pr ovide service learning ■ Operation New Beginnings, a joint effort of FSS and opportunities for public housing residents. Civic Works Baltimore Substance Abuse Systems, Inc., provides sub- Corps members lead youth activities at the Boys & stance abuse services to residents of Pleasant View Girls Club. Corps members and youth appr entices have also worked on landscaping and beautification pr ojects continued on next page at other Baltimore public housing developments.

Chapter 2 49 HOPE VI: Community Building Makes a Difference

continued from page 49 attending community meetings, working with youth, and getting to know residents. Community-oriented Gardens and other public housing projects. The policing has reduced crime and disorder at Pleasant approach links substance abuse treatment services to View. Between 1994 and 1998, the number of arr ests the FSS program and academic and job training. dropped 94 percent and calls for service declined ■ The Dr. Betty Shabazz Academy, a mentoring program, 75 percent. pairs girls ages 10 to 14 with pr ofessional female men- ■ The homeownership program helped 27 low-income tors to help them in their personal and academic devel- families purchase the newly built homes at Pleasant opment. The Baltimore Metropolitan Alumnae Chapter View. All of the homes were sold to families earning of Delta Sigma Theta Sorority, Inc., sponsors the program. 80 percent of the area median income—17 low-income families and 10 moderate-income families. Each family Community Fabric was given a low-interest loan subsidized by funding from HOPE VI and Maryland’s Community Development ■ Through a partnership with the police department, the Administration. Housing authority staff, working in new police substation at Pleasant View Gardens is conjunction with the Baltimore Department of Housing staffed 16 hours a day by Community Support and Community Development, marketed the homes Officers—police personnel responsible for law enforce- first to former Lafayette Court residents, then to other ment duties and for addressing quality-of-life issues housing authority residents and families in the commu­ such as loitering, excessive trash, abandoned vehicles, nity. Thirteen of the 27 units wer e sold to former unsecured doors, and insufficient lighting. The officers Lafayette Court residents. have also become involved in community life by service provisions to be comprehensive, in conjunction with the housing authori­ Currently, the median household income better coordinated, and family centered. ty, later decided to self-impose criteria at Pleasant View Gardens is $8,641 and Planning and management are guided about who should be allowed to r eturn 26 percent of household heads are wage more by consensus. and under what conditions. earners. Of the 152 Lafayette Courts families who returned to Pleasant View, Pleasant View Gardens is a family- Through FSS, residents can not only only about 35 percent still received pub­ oriented, self-sufficient community. All address direct employment issues but lic assistance as of March 1999. About working-age residents must participate also work to overcome barriers to 75 percent receive TANF and 25 percent in work or training activities and all eld­ employment such as substance abuse, receive food stamps only. Atkinson erly residents must carry out some form parenting difficulties, childcare or school proudly states, “almost everyone is in of community service. This potentially concerns, and healthcare issues. Three some training or education program.” controversial requirement was arrived at housing authority staff serve as FSS case Forty-three Pleasant View Gardens resi­ by joint agreement between the residents managers and refer residents to a variety dents have been placed in jobs, 66 have and the housing authority. Residents had of services, most of which are located had job training, and 122 have partici­ input into drafting the eligibility and onsite, in the new NOAH center. These pated in educational programs. screening criteria for prospective resi­ coordinated services cover employment, dents, resident regulations, and leases. education, childcare, youth recreation Since August 1998 PACE has enrolled Community-building technical assis­ and development, family needs, security, 47 residents and placed 28 in jobs. tance helped residents articulate for and other community-building issues. Fifteen residents who lived in Lafayette themselves and the housing authority Courts before redevelopment were the standards that would govern their enrolled in STEP-UP and participated new community. Ironically, the American Changing Lives in the construction of Pleasant View Civil Liberties Union earlier had filed The HOPE VI program has paid divi­ Gardens. In January 1999 the Entrepre­ suit on behalf of Lafayette Courts r esi­ dends at Pleasant View Gardens. Family neurship Program began its classes with dents to prevent the housing authority incomes at Lafayette Courts averaged 15 public housing residents, two from from imposing any preconditions for $6,099 in 1993 and only 14 per cent of Pleasant View Gardens. Three of the their return. Yet, the residents, working the families had any earned income. businesses developed during construc­ tion of Pleasant View are thriving.

50 Chapter 2 HOPE VI: Community Building Makes a Difference

the efforts of the two areas. Pleasant View Gardens staff attend meetings of Table 2.4 the council, and the planning council president sits on the board of the Changes in Criminal Activity, Pleasant View Pleasant View Gardens Community Gardens, 1994–98 Association. As a result of joint efforts, a CVS drug store recently opened at the Change Old Town Mall, a block and a half away Type of Report 1994 1998 (Percent) from Pleasant View, and a new grocery Robbery 28 2 –93 and other stores are scheduled to open Burglary 32 6 –81 there soon. Larceny 36 30 –17 The transformation of Lafayette Courts Auto theft 4 3 –25 and other public housing developments benefits the larger community because Common assault 53 36 –32 public housing constitutes such a large Aggravated assault 55 7 –87 portion (46 percent) of East Side hous­ Rape 1 3 +66 ing stock. The same problems that Other sex offenses 2 1 –50 affected residents of the old Lafayette Total calls for service 2,235 449 –80 Courts—high unemployment rates, high crime rates, lack of shopping facilities Total arrests 145 7 –95 and other amenities, and lack of youth Source: Housing Authority of Baltimore City recreational facilities—affected the whole East Side. In a community where virtual­ ly all of the housing (99 per cent in 1990) Since May 1998, 62 residents have par­ The most basic change that the HOPE VI- consisted of rental units, Pleasant View ticipated in the high school equivalency coordinated programs foster, Atkinson Gardens has brought 27 affordable homes program. Of these, 17 have been r etest­ explains, is to “instill in residents the to the market. ed with the Adult Basic Education test idea that ‘I can control my destiny. Pleasant View Gardens has brought sev­ and improved by an average of two That you can provide me with a beauti­ eral important services for children and grade levels. Three participants have ful, nice place to live—but it’s really up youth to the East Side. The housing obtained full-time jobs. One has ear ned to me. I can take it as far as I want to authority’s Child Development Center her GED. Seven residents have trans­ take it.’” is the largest in the city of Baltimore. Of ferred to a combined study and job train­ the 73 children enrolled in the program, ing program and one has gone on to 25 are from Pleasant View. The remain­ vocational rehabilitation. The computer Creating Change in the Larger Community ing 48 come from the surrounding classes have had 60 participants and 12 community. The Boys & Girls Club, have since obtained employment. The creation of Pleasant View Gardens operating in the donated space and Many residents have also taken advan­ was part of a larger revitalization plan new facilities of Pleasant View Gardens, tage of the family support ser vices at for Baltimore’s East Side. Pleasant View draws youth from across the city. The Pleasant View Gardens. Thirty-one Gardens lies within the boundaries of two Weinberg Community and Family Health residents have taken part in Family portions of the Baltimore Empowerment Center offers primary care, mental health, Tree’s parenting programs. The Zone (EZ)—a federally designated area dental and eye care services, health edu­ Intergenerational Program has paired with bonding authority to fund commu­ cation, emergency food and clothing, 12 young, single parents and their chil­ nity revitalization efforts and tax incen­ and other services to the community as dren with 12 elderly families, to add tives to encourage private investment. a whole. Half of the development is within East new, family-like ties in the community. HOPE VI enabled residents to create a Harbor Village and the other half is Of the 203 school-age youth at Pleasant revitalized community of law-abiding within the Historical East Baltimore View Gardens, 157 are members of the citizens. All residents at Pleasant View Community Action Coalition. The Boys & Girls Club. The Dr. Betty Gardens are held to community standards Shabazz Academy has mentored 12 girls. Jonestown Planning Council coordinates

Chapter 2 51 HOPE VI: Community Building Makes a Difference

set forth by the lease, by community The value of HOPE VI lies not only in approval to provide community-building rules, and by community expectations. the expansion of supportive services but technical assistance directly to resident Lafayette Court residents with known also in the intensity and coordination of leaders, but the training paid off in the criminal records were not allowed to service provision and in the nature of quality of participation. The HOPE VI return. The housing authority’s commu­ the housing authority’s relationships planning process, although more time- nity support officers patrol the property. with both residents and community consuming than the traditional manage­ An electronic security system monitors partners. Some of the new ways of ment models to which the housing the common areas and community doing things tested at Pleasant View authority was accustomed, strengthened buildings. Community support officers Gardens will be applied systemwide at relationships, created a better product, monitor issues of crime and disorder, the three other HOPE VI developments and allowed for greater buy-in by resi­ working closely with residents. Resident and at other public housing projects dents, housing authority staff, and patrols serve as an additional deterrent in Baltimore. community partners. However, resident to crime, and 19 residents have complet­ participation and community building at For example, at Somerset, a non-HOPE ed training for the Tenant on Patrol Lexington Terrace was probably less than VI development, the housing authority program. As a result of these measures, it might have been without the ur gency has constructed a new community crime has declined at Pleasant View of the citywide renovation program. building and is offering more com­ Gardens, creating a positive spillover prehensive services than in the past. The Housing Authority of Baltimore City effect for the community as a whole Housing authority staff will conduct has continued to strengthen its partner- (table 2.4). HOPE VI-like baseline data assessments ships with key stakeholders. Once a at other housing developments to guide month all onsite service providers, resi­ Changing the Housing service expansion. dent representatives, and management meet to discuss issues related to commu­ Authority’s Way of Doing The Family Self-Sufficiency (FSS) pro- nity and supportive services. In addi­ gram is available at all of Baltimor e’s pub­ Business tion, residents meet once a month with lic housing family developments. Pleasant management to discuss any concerns Bringing HOPE VI to Pleasant View View Gardens’ emphasis on self-sufficien­ they have about life at Pleasant V iew Gardens has been a learning experience cy and its HOPE VI-funded supportive Gardens. In May 1999, all members of for the housing authority. The housing services have made its FSS program a the Pleasant View community—seniors, authority has long operated a variety model one. Although FSS is still optional homeowners, public housing residents, of supportive service activities. Before at non-HOPE VI sites, staff now strongly and onsite social service providers— HOPE VI, the Family Support Center urge residents to participate. at Lafayette Courts embraced a family- joined together to form the Pleasant centered approach and referred residents HOPE VI has challenged the housing View Gardens Community Association. authority to shift from its traditional role to other services within the community. There are now four HOPE VI communi­ of operating as the controlling stakehold­ However, HOPE VI has brought a new ties in Baltimore: Pleasant View Gardens, er, in traditional contract-for-services emphasis on planning, partnerships, and Lexington Terrace, Flag House Courts, arrangements. From the beginning, self-sufficiency. and Murphy Homes, each in various HOPE VI, in both its physical r evitaliza­ stages of development. The housing tion and supportive services aspects, authority has thus been able to experi­ was a joint effort of the Mayor’s office, ment with various ways of structuring Lafayette Courts Tenant Council, com­ supportive services. The housing authori­ munity organizations, city institutions, ty is exploring ways to maintain account- and outside consultants. ability and, in some cases, relinquish the A great deal of process time was required day-to-day management of programs for these various stakeholders to reach and services. consensus concerning redevelopment The memoranda of understanding and supportive services. Technical assis­ between the housing authority and social tance providers reported that it took sev­ Lafayette Courts apprentices. service providers at Pleasant View, under eral months to gain housing authority which services are carried out under the

52 Chapter 2 HOPE VI: Community Building Makes a Difference

supervision of housing authority staff, move across the border to nearby Juarez, dents, according to the results of a 1993 have given way to more decentralized Mexico, leaving many citizens of El Paso housing authority survey. arrangements. At Lexington Terrace, without the jobs they had held for most “It was really hard for us to hear that the second HOPE VI site, the housing of their adult lives. Due to limited skills, Kennedy Brothers Apartments were con­ authority and the development team generally low educational attainment, sidered by people throughout the city of have contracted with a third party, the and weak English proficiency, many El Paso as the worst housing complex,” NOAH Group, to oversee the provision could not reenter the labor force. At according to Elsa Enriquez, then presi­ of supportive services. The housing Kennedy Brothers more than 75 percent dent of the Kennedy Brothers resident authority will provide daycare services, of the adult residents speak little or no council. “It is very hard to make every- but NOAH will provide most of the English at home. one understand that families in this other services and report to the housing Kennedy Brothers, located in the Ysleta complex are willing to do whatever it authority. Murphy Homes will operate in neighborhood in the Lower Valley, on takes to remove all negative connotations a similar way. The supportive services the city’s edge, was physically set apart attached to the Kennedy Apartments …. configuration at Flag Courts is a hybrid, from the surrounding community. It was [We] would like to unite to combat a joint venture between the East Harbor set back from the street and flanked by graffiti, gangs, violence, drugs, and alcohol Village Center, the Empowerment Zone a 50-acre vacant lot and a cemeter y. abuse. [We] desire to move forward and managing organization, and the NOAH Long considered the worst of El Paso’s better ourselves.” Group. This arrangement came about in public housing projects, it was an response to the request of residents and Soon, residents, in partnership with the indecorous monument to the lives of community groups to have a more sub­ housing authority, got a chance to move John F. Kennedy and Robert Kennedy. stantial role in providing services. themselves and their community for- Located within sight of the Rio Grande ward. In January 1995 the housing river, a barbed wire international divider authority received a $35 million dollar with Mexico across the border, the HOPE VI grant to revitalize Kennedy El Paso— apartments embodied a failure of the Brothers Memorial Apartments and pro- American dream for the largely immi­ vide supportive services to its residents. VISTAs of a grant residents. The 30-acre project— composed of 364 units in 61 gar den- New Community style apartments—was severely deterio­ Kennedy Brothers rated and covered with gang graffiti. The Memorial Apartments barren yards were strewn with litter. Today The Challenge Residents were “afraid to go outside ■ A community police officer and vol­ In the 1990s almost half of the house- because there were gangs, drive-by unteer COPS (Citizens on Patrol) holds of the Kennedy Brothers Memorial shootings, and drug dealings,” recalls work together to prevent crime. The Apartments in El Paso were dependent decade-long resident Lucy Galvan. police work with residents to solve on welfare and another 28 percent Fear of crime helped to further isolate community programs and counsel received unemployment compensation. Kennedy Brothers’ residents. families at the first sign of tr ouble People who were working tended to Because of the nearby cemetery and high to prevent crime and delinquency. hold minimum-wage jobs. Kennedy crime rate, El Paso residents had a say­ Crime has fallen dramatically. Brothers households had an average ing about Kennedy Brothers: Aqui te There is no gang-related graffiti annual income of $5,427, lower than the mataran y enterraran a la vez. (Here they or drug activity. income of three-fourths of El Paso’s pub­ will kill you and bury you at the same time.) lic housing households. ■ To date, 57 residents have served as Thirty of the Housing Authority of the AmeriCorps*VISTA (Volunteers in The once-vibrant manufacturing sector City of El Paso’s 41 public housing Service to America) volunteers. The of this Texas border town had begun complexes were considered severely Kennedy Brothers AmeriCorps* to decline by the late 1980s. Spurr ed distressed by HUD criteria. Kennedy VISTA program won a national by the new trade rules of the North Brothers was considered the least desir­ award from the National Association American Free Trade Agreement able location for housing authority resi­ of Housing Redevelopment Officials (NAFTA), major industries continued to in 1998.

Chapter 2 53 HOPE VI: Community Building Makes a Difference

■ The Computer Literacy and meeting rooms. The new state-of- dent and community leaders, housing Educational Services Center has the-art Kennedy Brothers Recreation authority staff, and community stake- provided 5,920 hours of computer Center serves as a citywide resource. holders. The task force developed a experience to 592 computer users. It has a regulation basketball court vision for the community, prepared a As a result of center efforts, 2 resi­ with retractable bleachers, an exer­ mission statement for the housing dents are attending English classes cise room, a toddler playroom, box­ authority, and strengthened existing and 12 are enrolled in college class­ ing rings, a weight room, and a institutions and relationships. The es. Sixteen youth have completed at stage. The recreation center houses Center for Sustainable Communities at least one computer class. a community policing office and the University of Texas at El Paso pro­ youth drop-in center. Residents can vided community-building technical ■ Twenty youth gained 200 hours of relax in a new outdoor park. assistance. A consultant, originally with job experience and 25 residents Housing Development Partners and later who previously received TANF ■ HOPE VI is constructing 124 addi­ with Pena Helm, assisted with both the are now employed. One resident, tional apartments and 50 for-sale construction and the supportive services Raul Torres, has opened a land­ houses on an adjacent 45-acre plans. A March 1997 workshop further scaping company. property, to be called Kennedy refined the vision for the provision of Estates. The project will be ■ Partnerships have been established supportive services at Kennedy Brothers completed in 2000. with many community organiza­ and planned a communitywide econom­ tions, including the Child Crisis ic development strategy. Center, Project Vida, Mujer Obrera, How They Did It: The Kennedy Brothers developed a unique the Ysleta Independent School HOPE VI Story in El Paso approach to supportive services, build­ District, the YMCA, and the ing on its own community assets: a El Paso Police Department. The Kennedy Brothers Apartments had assets to build on even in the midst of strong resident council, a spirit of volun­ ■ The development has been trans- distress. The housing authority has a teerism, and a common cultural her­ formed physically. The complex track record for working with Kennedy itage. Residents organized the resident now consists of 240 garden-style residents to help improve the quality of council into committees to address spe­ apartments grouped into clusters. their lives, and the resident council has cific issues, a structure echoed in the Each cluster is a mini-community, long been a strong force in mobilizing HOPE VI community and supportive and residents share responsibility to better the community. Even before services efforts. for their upkeep. Each apartment HOPE VI resources were available, the The HOPE VI community and support­ building has an enclosed backyard. council established a Block Captain/ ive services strategy provides or coordi­ A new community center houses a Neighborhood Watch group to protect nates services in seven areas, also known computer literacy and education residents against crime and keep the as components: center, an economic development grounds clean. After receiving approval center, a community development ■ Economic and small business and appropriate training from the hous­ corporation, an afterschool pro- support. ing authority, the residents, led by the gram, office space, and community resident council, handled the decon­ ■ Daycare. struction activity. They removed and ■ Computer literacy and training. later sold plumbing fixtures from apart­ ments that had been vacated prior to ■ Primary healthcare and substance demolition, earning $16,000 for the abuse programs. resident organization. ■ Community security. In January 1996 Kennedy Brothers ■ Recreation. stakeholders began to develop a commu­ nity and supportive services plan with ■ Multicultural arts. the aid of technical assistance. A newly Residents staff most of the components appointed community-building task either as paid staff under contract to the force guided the process, including resi­ El Paso residents of the Kennedy Brothers Apartments. housing authority or as AmeriCorps*­

54 Chapter 2 HOPE VI: Community Building Makes a Difference

Exhibit 2.9

Programs and Community Partners Kennedy Brothers HOPE VI support services consist of the ■ Through the HOPE VI recreation component, a group following programs: of Kennedy Brothers residents works to support recre­ ■ The Kennedy Economic Development Center assists ational activities at the development. Since Januar y residents of the Kennedy Brothers community with job 1999 many of the sports and r ecreation activities have development and small business start-up ser vices. The taken place at the newly opened Kennedy Br others center has provided assistance to numerous residents Recreation Center. The development operates a baseball and has referred residents to job openings throughout league, a basketball league, and an amateur boxing El Paso. The center conducted a sur vey to determine tournament. Field trips have taken young people fr om the education level, job skills, and vocational inter ests the development to a local swimming pool, bowling, of residents. It helped two residents prepare proposals El Paso Patriots soccer games, El Paso Diablos baseball for the custodial services contract for the new commu­ games, and El Paso Scorpions rugby games. The r ecre­ nity building, which was to be awar ded to a resident. ational group also organizes nutrition and exercise The center also helped Kennedy Brothers resident Raul classes for adults. Torres establish a landscaping company. In 1998 the ■ Through the HOPE VI multicultural arts component, center received an $11,000 grant from the Upper Rio residents and AmeriCorps*VISTA volunteers organize Grande Private Industry Council (PIC) to hire 20 youth arts, crafts, and performance activities. Kennedy from public housing. The youth assisted the volunteers Brothers has a professional-level folklorico group, in staffing the various program components. In 1998 IMADAN. This group performs locally, across the state, the housing authority also participated in a successful and at international functions. The multicultural arts effort to get a 10-square-mile Empowerment Zone (EZ) group crafted 150 corsages in May for Mother’s Day and designated in El Paso—a federal program that will bring distributed friendship bracelets for children at a local $100 million in funds over 10 years and leverage local health fair. HOPE VI funds contracts with local artists investment with tax breaks and other inducements. and arts agencies to provide mural and portrait classes, ■ The Computer Literacy and Educational Ser vices Center ballet and folk dance courses, street theater, and tradi­ offers five computer courses including beginning and tional Mexican-American poetry. advanced courses in Windows 95, word processing, ■ The HOPE VI community security component is a and spreadsheets. The center has provided assistance to partnership of the resident council, the El Paso Police more than 592 computer users for about 5,920 hours of Department, and the housing authority staff. A commu­ computer use. There have been 173 graduates to date. nity policing office and youth drop-in center are located ■ Youth-to-Youth, an afterschool program for children in the recreation center. AmeriCorps*VISTA volunteers and youth ages 4 to 14, is a joint ef fort of the local and the community police officer coordinate gang and Capistrano Elementary School and Kennedy Brothers drug prevention programs, Neighborhood Watch pro- Memorial Apartments. Housed in the community multi- grams, and a youth advisory board. In July 1998 five purpose center, the program pays Kennedy Brothers residents and Craig participated in the Citizens Police teens to tutor younger children. This year approximate­ Academy, sponsored by the El Paso Police Department. ly 40 youth are registered, with 4 teen tutors. The ■ Healthcare services are provided next door to the program coordinator, Irene Campas, is a counselor at Kennedy Brothers complex by Thomason Cares at the school. Ysleta, a clinic funded and operated by Thomason ■ Even Start Family Learning Center provides educational Hospital. The clinic, which opened in 1998, of fers pri­ opportunities for adult residents with children under mary care, prevention services, and substance abuse age 6, such as English as a second language, citizenship treatment. After discussions with the housing authority, preparation, and a college preparatory course. Parenting Thomason decided to open its own clinic to allow it to education and parent/child activities are included in the better reach its target population: residents of the Lower curriculum. Valley, including those at Kennedy Brothers.

Chapter 2 55 HOPE VI: Community Building Makes a Difference

VISTA volunteers. Both the contracts Four major community partners carry housing authority. Their skills are further and the stipends for volunteers are out Family Investment Center programs. developed through experience within funded through HOPE VI. The Private Industry Council (PIC) pro­ the community. The volunteers serve as vides workforce training, literacy train­ staff for various program components. Housing authority community builder ing, and job skills for dislocated workers Some may stay with one component Terry Craig managed the day-to-day and public housing families using feder­ for the whole year, while others rotate operations of HOPE VI at Kennedy al Job Training Partnership Act funds. responsibilities for a range of program Brothers Memorial Apartments. Between The El Paso Community College offers experiences. July 1997 and February 1999 Craig English as a second language, GED, supervised the AmeriCorps*VISTA pro- At Kennedy Brothers the VISTAs are higher education, and vocational educa­ gram, coordinated the HOPE VI commu­ treated as professional staff capable of tion classes. The public schools offer nity and supportive services components, designing and running programs. At the remedial education, GED preparation, and oversaw building operations. She beginning of HOPE VI, the housing and various computer classes such as has been part program manager, part authority contracted with outside service keyboarding, document production, technical assistance provider, part com­ providers to train volunteers and pro- and Microsoft Office. AVANCE, a munity organizer, part construction vide services. Current and former youth development nonprofit, offers manager, part cheerleader, and part VISTAs now provide most services parenting, literacy, and child develop­ community liaison. It was a daunting themselves, although Craig’s job is to ment education classes. task, yet one that she handled with con­ provide guidance and technical assis­ fidence. The assistance she received from tance. Outside consultants are brought volunteers, residents, and community The AmeriCorps*VISTA in only as needed, and, whenever possi­ members in running the onsite compo­ Program at Kennedy Brothers ble, they are Kennedy residents. The nents was essential to her success. AmeriCorps*VISTA volunteers now staff AmeriCorps*VISTA is a full-time, year- most HOPE VI tasks: computer and long volunteer program in which people educational services center, economic Coordination With FIC Programs of all ages commit themselves to helping and small business development, multi- Another resource for Kennedy Brothers low-income people improve their com­ cultural arts, recreation, and substance residents is the housing authority’s munities and their lives. Volunteers abuse programs. newly opened Family Investment Center receive a $600 to $800 monthly stipend The AmeriCorps*VISTA program helped (FIC), located about 15 minutes from during their service and an education make the Kennedy Brothers’ youth train­ the development. Opened in late 1998, voucher worth $4,275 at the end of ing program a success. In 1998 Kennedy the 11,194-square-foot facility houses their service. Brothers received a grant from the local the Family Self-Sufficiency (FSS) pro- Since the program began in 1994, 57 PIC to hire 20 youth from public hous­ gram for Section 8 and public housing Kennedy Brothers residents have served ing for the summer. The VISTAs super- residents and serves the 17 public as AmeriCorps*VISTA volunteers. Each vised the youth, who assisted them in housing complexes located nearby, year Kennedy Brothers selects approxi­ staffing the components. A site visit including Kennedy Brothers. The FIC mately 12 residents for the program. The review by the PIC showed Kennedy programs complement the services AmeriCorps*VISTA program taps into Brothers to be in compliance with all offered onsite at Kennedy Brothers. The the diversity of the community, from rules, regulations, and program guide- center provides all the resources neces­ Alejandro de la Pena, a recent high lines. The following year the volunteers sary to gain literacy and social skills, school graduate, to Maria Elena Ramirez, wrote a grant—without any outside learn English, earn a GED, prepare for a 31-year-old mother of six. Informally assistance—to fund the summer pro- college, participate in employment train­ referred to as “the VISTAs,” these volun­ gram for 1999. ing, look for a job, or pr epare for home- teers receive technical, leadership, and ownership. The facility has two self-help community-building training through Innovative use of the AmeriCorps*VISTA resource rooms, eight counseling offices, local and regional workshops. During program has enabled Kennedy Brothers an aptitude testing room with comput­ their service year, the VISTAs attend residents to gain employment skills and ers, four classrooms, a library/study, three to five trainings sponsored by the work experience while contributing to a computer laboratory with 24 work- Corporation for National Service and their community. The biggest plus, how- stations, and drop-in childcare. three to five sessions sponsored by the ever, is that resident volunteers are not

56 Chapter 2 HOPE VI: Community Building Makes a Difference

Exhibit 2.10

Resident Stories: The Kennedy Brothers HOPE VI Experience The Kennedy Brothers HOPE VI experience has had a pr o- resident council. Later she helped carr y out HOPE VI plan­ found effect on the lives of its r esidents, because they are ning and resident surveys. When her family was temporarily able to benefit from services and programs offered, and then relocated to another public housing development, Haymon give back in service. Krupp Memorial, she continued to participate on the HOPE Patricia Olivas is a 26-year-old Kennedy Brothers resident VI Advisory Committee and helped keep other r elocated res­ and mother of three. Four years ago she joined Even Start, idents informed of events at Kennedy Br others. The housing an onsite parent/child education program, and obtained authority eligibility department hired Balbuena as a HOPE her GED certificate. She was among the first gr oup of VI technician. She was responsible for transfers, temporary AmeriCorps*VISTA volunteers to be trained as community relocations, and responding to resident concerns about relo­ builders. After completing her HOPE VI-funded VISTA year, cation. After returning to the revitalized Kennedy Brothers, she was hired as volunteer coordinator for the Socorro she was selected to join the thir d group of AmeriCorps*- Independent School District. Her goals are to complete her VISTA volunteers. A few months after she began as a volun­ education, become an elementary school teacher, and pur­ teer, she applied to the housing authority for a management chase her own home. technician position and she now works at the Sun Plaza High-Rise Elderly Community. Alfonso Andrade is 59 years old, married, and the father of two. After moving to Kennedy Br others, he became a vol­ Sergio Orozco, a 21-year-old sophomore at the University unteer with the HOPE VI multicultural arts and r ecreation of Texas, El Paso, is a former Kennedy Br others resident who components, where he taught youth art activities and recently purchased his own home. After completing high coached the baseball team. His involvement with the Block school, he became an AmeriCorps*VISTA volunteer and Team cleaning crew earned him the nickname Mr. Clean. As worked in the computer center. At the end of his HOPE VI- a result of his volunteer efforts, he was elected president of funded volunteer year, he enrolled at the university, where the resident council in 1996, the third council president he majors in English and American literatur e. To help sup- since the beginning of HOPE VI. The following year he port his family, he first worked the graveyard shift on the participated in the pilot Resident Preventive Maintenance Neighborhood Watch patrol. The housing authority then Program and was later hired in a permanent position. He hired him as computer liaison at the computer center in the would ultimately like to own his own business, and will be new community building. When Terry Craig, the HOPE VI able to work with the HOPE VI-funded economic develop­ community builder, was promoted in February 1999, Sergio ment center to achieve this goal. became interim community builder. When a permanent community builder was hired in April 1999, Sergio returned Judy Balbuena is a 37-year-old mother of three. She moved to his position at the computer center. In spring 1999 he to Kennedy Brothers with her husband and children in purchased a home in the Lower Valley, where he lives with 1993. In 1994 she was elected ser geant-at-arms for the his mother and younger brother. hindered by cultural and language barri­ Changing Lives ■ Sixteen youth have completed one ers while working within this 100-percent or more computer classes. Hispanic community. Many of the lead­ Many residents benefit from these ■ Twelve residents are enrolled in ers within the Kennedy Brothers com­ services: higher education and two are munity are current or former volunteers, ■ Twenty-five residents who previous­ attending English classes. both because the program taps into the ly received TANF are now working pool of indigenous community leaders in paying jobs. ■ One resident, Raul Torres, estab­ and because participation in the program lished a landscaping company. ■ Twenty youth gained 200 hours of builds leadership skills. job experience. Not all Kennedy Brothers residents have been able to translate their

Chapter 2 57 HOPE VI: Community Building Makes a Difference

AmeriCorps*VISTA volunteer experience Child Crisis Center and other El Paso The community development corpora­ into employment opportunities. One AmeriCorps groups to hold the first tion, although not yet fully operational, reason is a lack of job opportunities in annual health fair for children. More is currently located in the community the El Paso area. While unemployment than 600 residents and community center. Agency representatives and com­ is 2 percent nationwide, it is between 9 members attended. munity residents comprise the board. In and 12 percent in El Paso. Many of El early 1999 a request for proposals for Paso’s manufacturing jobs have relocated small business plans was sent to all across the border in Juarez, Mexico. Residents and the Lower Valley residents within a one-mile radius of Kennedy Brothers. There were One problem for Kennedy Brothers resi­ HOPE VI advisory 13 responses. Another request for pro­ dents is the extreme physical isolation council realized that posals is being issued for agencies to of the development—a 15- to 20-minute administer the loan funds. car trip to downtown by expressway. an effective community Transportation to and from a place of Kennedy Brothers residents and housing at the development work remains difficult for many. Even authority staff have played an active role after the successful physical redevelop­ must include in helping the Lower Valley receive EZ ment and the active support ser vices designation—a national program to pro- that have been established onsite and stakeholders from the vide tax and other incentives to busi­ nearby, the question of how to r evitalize surrounding community. nesses in disinvested areas. Community and reknit Kennedy Brothers Memorial builder Terry Craig and a group of Apartments with the larger community AmeriCorps*VISTA volunteers helped is still unanswered. Kennedy Brothers residents have fos­ with the second-round 1998 EZ applica­ tered economic development activities in tion process. They attended all of the Another problem is that many Kennedy the surrounding community. Residents community meetings, helped formulate Brothers residents have not gained suffi­ and the HOPE VI advisory council real­ the comprehensive plan, and surveyed cient English proficiency to take jobs in ized that an effective community at the 1,137 businesses within the targeted the service sector, which is now the development must include stakeholders area. Craig and two AmeriCorps*- largest part of El Paso’s economy. It is from the surrounding community. Over VISTA volunteers were selected to go possible that the HOPE VI program has a 2-year period, residents worked with to Washington, D.C., as part of the EZ not paid sufficient attention to increas­ housing authority staff and AmeriCorps*- lobbying effort. In 1998 El Paso became ing the English proficiency of residents, VISTA volunteers—with ongoing techni­ one of 15 cities in which HUD designat­ particularly to building their job-related cal assistance from the University of ed an EZ. As such, the 10-squar e-mile vocabulary, as the Vocational English as Texas Center for Sustainable Neighbor- zone stands to receive $100 million over a Second Language program at Seattle hoods, Housing Development Partners, 10 years and to leverage many times that has done. and the Urban Institute—to develop a amount in local investment. Craig was neighborhood outreach strategy for the later appointed by the mayor to serve Creating Change in the Lower Valley. In March 1997 the group on the EZ advisory board. held a workshop with business owners, Larger Community The University of Texas Public Policy neighborhood residents, and representa­ Research Center in 1998 asked Kennedy Many of the recreational and cultural tives of community organizations to Brothers AmeriCorps*VISTA volunteers activities at Kennedy Brothers enrich the discuss strategies for business and com­ to gather information on business larger community. The newly opened munity development. As a result of the opportunities in the Lower Valley, as a Kennedy Recreation Center is a citywide workshop, the group agreed to form a result of the recent construction of a resource. The gym, stage, and sports community development corporation, shopping center. In March 1999 the city leagues provide much-needed recre­ conduct feasibility studies for proposed began to develop its comprehensive plan ational facilities. The folklorico dance community-based businesses, establish a for the next 25 years. Kennedy Br others group, IMADAN, performs in El Paso, revolving loan fund, provide technical residents and youth mobilized to attend across Texas, and internationally. The assistance after creating the corporation, the session for the Lower Valley. Kennedy Brothers AmeriCorps*VISTA and pursue additional funding sources. volunteers collaborated with the

58 Chapter 2 HOPE VI: Community Building Makes a Difference

HOPE VI funds will also increase the AmeriCorps*VISTA program supplies a to form partnerships with outside agen­ affordable housing stock in the Lower pool of experienced candidates. The cies to provide services to Kennedy Valley. The development of Kennedy HOPE VI program also fostered the com­ Brothers and prevent duplication of Estates will place 50 for-sale units on a munity partnerships to train volunteers. these services. This outreach effort has previously undeveloped 45-acre plot. Through the volunteer program, many benefited the housing authority. As a residents have moved on to permanent result of the HOPE VI experience, the positions at the housing authority. housing authority now regularly part­ Changing the Housing ners with other government and non- Authority’s Way of profit agencies to provide services to Doing Business “HUD wants housing residents. Craig and the VISTAs have also expanded the reach of the housing Despite his reputation as a bricks-and- authorities to lead authority, enabling it to embrace the mortar housing manager, Executive residents to self- Lower Valley community, form partner- Director Robert Alvarado has played an ships with other organizations, and important role in organizing residents sufficiency, for public participate in citywide planning activities. and supporting their initiatives. As early as 1993, when the housing authority housing to be a Before HOPE VI, under Alvarado’s was applying for an Urban Revitalization temporary stop. leadership, the housing authority was Demonstration Project planning grant, already moving toward increasing resi­ residents were involved in selecting the HOPE VI is the trend dent and community involvement and site most in need of revitalization. After of how public housing helping residents become self-sufficient. the site was selected, Alvarado quickly HOPE VI provided momentum and, involved the residents in the planning will be in the future.” more important, technical assistance process. Under Alvarado, Kennedy and funds to further these goals. Craig Brothers residents carried out decon­ adds, “HOPE VI helped put things in struction activity—removing and selling Through HOPE VI the housing authority perspective. It’s not just about housing the plumbing fixtures from apartments created a new community builder posi­ anymore. We’re looking to provide self- before demolition. tion—a combination HOPE VI coordina­ sufficiency and homeownership.... HUD tor, community-building facilitator, and wants housing authorities to lead resi­ AmeriCorps*VISTA volunteers have volunteer manager. Terry Craig, who dents to self-sufficiency—for public become an integral part of the opera­ was in the position from July 1997 until housing to be a temporary stop. HOPE tions of Kennedy Brothers. Alvarado February 1999, has since been promoted VI is the trend of how public housing has made a commitment to employ to director of operations at the housing will be in the future.” ❖ residents and the HOPE VI-funded authority. One of her responsibilities was

Chapter 2 59

HOPE VI: Community Building Makes a Difference

Chapter 3 Lessons Learned

he preceding chapter examined helpful to people engaged in community- Thow seven exemplary sites imple­ building efforts in any low-income, mented the HOPE VI program. The distressed community. appendix supplements that examination ■ Training ground. Public housing com­ with a number of briefer analyses cover­ munities can become effective train­ ing efforts in a wide variety of HOPE ing grounds and launching pads for VI and other public housing develop­ underprivileged or marginalized ments. This chapter cuts across all citizens who want to become self- these experiences and examples to sufficient and a catalyst for the r evi­ understand their broader implications talization of the larger neighborhood. for policy development. ■ Need for overall strategy. Having a This chapter summarizes the major strategy or master plan is essential. lessons learned from the countrywide This includes making a detailed community-building approach. The inventory of community assets and following more specific lessons relating resources, potential partners, long- to four basic functions of a healthy and short-term goals, and the kinds community are also discussed: of resident activities that should be ■ Providing opportunities for supported in order to achieve those employment. goals. The master plan should include a strategic vision for the use NewHolly residents enjoy their revitalized Seattle neighborhood. ■ Providing opportunities for of Section 8, including actions to education. build the capacity of receiving com­ ■ Meeting the needs of families. munities to support the efforts of the very poor to achieve self-sufficiency ■ Engaging residents in the life and as well as a vision of transformation prospects of the community. for the revitalized site. ■ Resident involvement. Residents General Lessons should be actively involved from The best practices described in this book the start in identifying the needs are rich with lessons for other housing and priorities of the community agencies, resident groups, and their and shaping and implementing community partners. Although HOPE VI the strategies for addressing them. community-building efforts take place in Failure to include residents length- the context of thorough physical revital­ ens the process and quite often ization, many of the examples in the leads to lawsuits. The best people appendix are not from HOPE VI sites. must be continually sought out and These lessons, therefore, should be nurtured to fulfill this critical role.

Chapter 3 61 HOPE VI: Community Building Makes a Difference

change its way of operating must be and resident involvement. These lessons both genuine and determined. Staff, constitute a valuable set of tips, caveats, where necessary, must be given the and practical suggestions that should be training or reorientation they need kept in mind as housing authorities and to think and act differently and resident councils organize for action. must be held accountable to the new directive if the authority is to Employment retain credibility with the residents. Providing public housing residents with Walgreens Training Academy Graduation, Chicago. ■ Forging partnerships. Seeking out and access to employment opportunities is forging partnerships with experi­ a challenge that requires thought and enced nonprofit and for-profit insti­ To function effectively, they must planning. In order to take advantage of tutions in the larger community enjoy the trust of the other r esidents these opportunities, however, many resi­ (such as police, social service agen­ and be able to take a perspective dents may require the aid of various cies, civic groups, area businesses or that transcends personal agendas. support programs. Such supports can business associations, local school spell the difference between failure and ■ Keep your eyes on the prize. Progress systems, and community colleges) becoming self-sufficient.1 does not always proceed in a is key to delivering the supportive straight line but often advances in services—and developing the Social networks that tie residents to fits and starts. But even disappoint­ opportunities—residents need to actual job opportunities and to stake- ing setbacks and failures can teach become self-sufficient. holders are a critical part of a job-linkage valuable lessons. Building the strategy. In general, the more formal the ■ Value of localized initiatives. Efforts capacity of people and institutions network, the stronger the outcome for should be focused on an area of to take on new responsibilities is low-skilled workers. In the most effec­ manageable size: a community never a simple task. The shared tive employment programs, housing whose residents and other stake- vision must be kept central, while authorities identify prospective employ­ holders can know each other, feel strategies or mechanisms for achiev­ ers and tie the training process to job some measure of control over their ing it are adjusted or rethought and commitments. These results-oriented environment, and have input into new players brought into the process programs are grounded in actual job the decisions that affect their lives. from time to time. employment slots and real job gains ■ Case management and system change. for residents. ■ In for the long term. The housing Given reasonable caseloads, the case authority and its partners must Some major corporations are beginning management approach can help pull be prepared to stay the course. to draw on the untapped labor pool of together a variety of needed ser vices It is important to set short-term, HOPE VI and other public housing r esi­ at the local level in the ser vice of a more easily achievable goals as dents. HOPE VI supportive services and larger vision. But larger system well as long-term goals. It is also similar housing authority programs help changes that are supportive of the important to celebrate even modest prepare residents for employment and integrated approach to service pro- accomplishments (for example, assist them in overcoming barriers to vision should be sought. through newsletters, bulletin work, such as the need for childcar e boards, graduation ceremonies, services. These corporations may partici­ awarding simple plaques, or other Additional Lessons pate in the Work Opportunity Tax community events). Credit program, a federal incentive for A number of important lessons also employers that provides a 40-percent tax ■ Willingness to change. The commit­ emerge in four specific areas of activity: credit on the first $6,000 in wages of ment of the housing authority to employment, education, family needs, disadvantaged and “hard-to-hire” groups.

1Some of the ideas and suggestions in this chapter ar e drawn from an unpublished paper, "Community Building in Support of an Emp loyment Strategy for Public Housing Residents," pr epared by Arthur J. Naparstek and Dennis J. Dooley for the Manpower Development Resear ch Corporation, 1996; others are from the June 1999 workshop, "Establishing a Meaningful Role for Public Housing Residents in the HOPE VI Development Process," developed by EDTEC, Inc., for HUD.

62 Chapter 3 HOPE VI: Community Building Makes a Difference

The partnership between the Walgreens Marriott International’s Pathways to Access to computer technology can pro- drug store chain and the Chicago Independence program also works with vide residents with salable skills and Housing Authority—which won a public housing residents, many of them access to job-related information, job Secretary’s award at HUD’s July 1999 HOPE VI residents, in 18 states. This training programs, GED or literacy pro- Best Practices and Technical Assistance program offers both soft skills training grams, and other resources. Access to a Symposium—provides a model for a and hands-on job training at working personal computer can become a power­ retail employment program with sup­ restaurants and lodging facilities. It ful incentive for residents to participate portive services for public housing resi­ helps individuals get the skills they in an educational program. dents. In 1998, through the auspices of need to begin a career in the hospitality Part-time jobs can become a bridge for EDTEC, Inc., the housing authority industry, increases Marriott’s pool of graduates from a computer program to signed a memorandum of understanding qualified applicants for entry-level posi­ work while they continue to perfect with Walgreens to install retail training tions, and gives Marriott the opportunity their skills. Faith-based organizations, centers in community facilities at two to try out persons with employment bar­ businesses, and civic volunteer organiza­ HOPE VI sites—the Cabrini Green riers before committing to offering them tions can provide mentoring and leader- Dantrell Davis Center and the Robert jobs. Marriott estimates that Pathways to ship programs for residents. Taylor Homes Boys & Girls Club. In this Independence costs $5,000 for each par­ partnership, Walgreens creates a training ticipant. Community partners— Community service programs can be facility by installing donated store equip­ including private industry councils, work useful partners in building job skills and ment, such as sales counters, display development boards, community-based launching new businesses. Natural apti­ shelves, computers, price scanners, and organizations, and local departments tudes or life experience can sometimes sample merchandise. Walgreens trains of social and employment services— point the way to marketable interests residents in this onsite facility. The hous­ reimburse just over half the cost. The and skills—with outside agencies pro­ ing authority provides a family self- remainder is considered an in-kind viding the necessary screening, formal sufficiency course and job-readiness contribution by Marriott. training, supervised experience, and cre­ training, which residents must take dentials. The expertise available from before entering the Walgreens program. entities such as the Small Business The housing authority’s readiness train­ Administration can be brought in to ing emphasizes the “soft skills” such as teach residents the various aspects of courtesy, promptness, regularity, and starting and managing a small business. self-responsibility that are basic to all Assessing the services needed by area work environments. The housing residents and businesses is a good way authority also provides help with child- to generate ideas for resident-owned care. The Walgreens training covers both enterprises. Community needs such as the nuts and bolts of retail work and the childcare or an affordable outlet for food importance of good customer service. Children enjoy recreational activities at a revitalized HOPE VI site. or essential supplies can be a sour ce of By August 1999 two dozen HOPE VI jobs for residents, perhaps even leading residents were employed by the drug Employment-readiness training is key to full-time positions in the private sec­ store chain, while another 12 completed for many chronically unemployed per- tor. Work that might once have been the training. Walgreens is currently sons to keep a job. To be truly employ- contracted out by the housing authority working to expand this effort to HOPE able, individuals need not only be able can provide jobs and experience for new VI sites in Cleveland, New Orleans, to demonstrate competency in perform­ employee-owned companies, helping Memphis, St. Louis, and San Antonio ing some type of work, but they need them to establish a track record of con- and plans to continue setting up to have appropriate attitudes and work- tract fulfillment and competent perform­ programs in as many as two dozen place habits. Followup counseling or ance. (Code provisions may allow HOPE VI cities where there are support is often helpful—through mutu­ housing authorities to take supportive Walgreens stores. al support groups or an ongoing men­ actions such as temporarily freezing the toring program. rent of residents engaged in building a new business or starting a job.)

Chapter 3 63 HOPE VI: Community Building Makes a Difference

the beginning of the planning process, dents already have that might match asking the prospective contractor such certain requirements? But even people questions as: How many workers will with appropriate skills may still fail to you need to perform each task? Wher e qualify. Even a skilled craftsperson will will you get those workers? What kind be rejected for failing the drug test given of training will residents need to take to all workers to ensure the safety of a advantage of these opportunities, and construction site. Resident leaders need how and where can that be arranged? to make it clear to residents who are HOPE VI job training, such as this pr operty management pro- What services or tasks will you be sub- interested in applying that they need to gram in Seattle’s Holly Park, gives residents a chance to learn marketable skills. contracting? What vendors or companies be “clean” and that marijuana, for exam­ or unions do you usually work with? ple, stays in your system for 30 days. How many residents will you (or they) The flow of public revitalization dollars Housing authorities must identify ap­ commit to hiring as workers or trainees? into a neighborhood can generate propriate community partners and Where can residents acquire the skills opportunities for on-the-job training for make someone responsible for liaising they’ll need? Residents should negotiate residents, especially through Section 3 and coordinating those partnerships. with the housing authority in advance to employment regulations. Section 3 regu­ Residents should help to design and have technical advisors present—such as lations establish goals for the hiring of implement these programs. Having an architect, an attorney representing residents of affected public housing proj­ input up-front and throughout the their interests, and a consultant on con­ ects and other very low-income neighbor- process increases resident buy-in to struction and demolition matters. Public hoods on HUD construction projects. the process. These jobs, although temporary, may housing authorities must create the con- be structured to provide entry to labor text to support such resident involve­ Ideally, the resident advisory council union jobs or other private-sector ment or it will be extremely difficult for should be an active participant from the employment. HOPE VI revitalization it to take place. start in HOPE VI and other community- building programs that will affect their itself can be the source of jobs, even Those steps necessary to “demystify” the lives. Residents should be involved in the beginning of a profitable career. process should be taken, and housing the planning for rehabilitation of units, authorities should provide as much help A public housing demolition or con­ demolition, and construction matters— as they can with this. Resident r epresent­ struction project often involves many all of which generate employment and atives need to find out who in the hous­ specialized tasks, such as the removal of the need for ancillary services. hazardous materials, roofing, carpentry, ing authority is going to be r esponsible masonry, and other construction trades. for monitoring Section 3 compliance. It also could involve the procurement With many of these contractors and Education of support tasks such as food ser vice. some housing authorities, residents will To improve academic performance, Section 3 provisions call for contractors be going up against inertia, tradition, especially among elementary school-age to make their “best efforts” to hire resi­ and old habits. But it does not have to children, an advisory group composed dents. Early involvement and constant be business as usual if housing authority of parents, residents, leaders, business vigilance by resident representatives is staff and residents agree that they are people, educators, and service profes­ the key to ensuring compliance. Another going to become agents of change. sionals should be formed. In Atlanta is getting the housing authority to agr ee An agreement to use minority-owned or and elsewhere, this approach was suc­ to withhold partial payment at various women-owned businesses, however, cessful in guiding school program design stages of completion until a contractor’s should not be confused with Section 3 as well as community participation. promises are kept. compliance. One does not necessarily Development training aimed at enhanc­ Plans are put in place, agreements imply the other. So residents should ing the knowledge and skills of all par­ signed, and particular contractors often decide their strategy for dealing with ticipants in the education process should come in and out very quickly. To take Section 3 at the beginning of the pr ocess. be provided for administrators, teachers, advantage of the new jobs, resident Will it involve a training program? A job counselors, paraprofessionals, and par­ representatives need to be there from bank? What skills or experience do r esi­ ents. A service network to provide the

64 Chapter 3 HOPE VI: Community Building Makes a Difference

full range of human services, health, and Meeting the Needs of Families Here parents can interact with their chil­ mental health resources should be set up dren, with other parents about the care A community board of parents, residents, to support the investment in educational of children, and with trained staff in service professionals, educators, and achievement. a hospitable, nurturing environment. business people should be set up to Center staff work with parents to sup- In order to provide educational readi­ guide the design and ongoing develop­ port their children’s healthy develop­ ness for preschool children, a similarly ment of a basic neighborhood family ment, including how to advocate for constituted advisory group should guide center. The center is a locus for the their children in school and how to the design of integrated services. These support network of resources that keep work with the school in planning their services should include such things as families intact and help them lear n par­ children’s education. pre- and postnatal healthcare; the enting skills. Services might include identification and treatment of illness, family life counseling, child develop­ For school-age children and older environmental contamination, or handi­ ment screening, temporary childcare, youths (especially those from families capping conditions, which, if undetected mentoring, and family recreational or headed by young, single parents with and untreated, could reduce a child’s social activities. Outreach and home- little education and work experience), ability to benefit from effective educa­ visit services can be provided by resi­ programs such as mentoring, self- tion; and parent support such as family dents trained to contact isolated families, esteem building, and sex education literacy and parenting programs. identify family needs, initiate family cen­ can be implemented following models that have been proven effective in pre- Early-childhood facilities and programs ter participation, and facilitate access to venting school dropout incidents and (both daycare and preschool) that maxi­ services in and outside of the center. early pregnancy. mize parent access and participation should be set up, along with a family … parents can interact Pioneering models have been developed support system to involve and track that provide public housing residents families from the prenatal stage onward, with their children, with access to the full range of physical troubleshooting family problems and with other parents and mental healthcare and preventive identifying needs for interventions and education—from substance abuse coun­ opportunities for improving services. about the care of seling and treatment to prenatal care Opportunities should be created for for young mothers. Recovery from children, and with parents to develop an understanding substance abuse can be tied to overall of child development and to share trained staff in healthcare, housing, education, child- these skills with other parents in care and other family services, and the community. a hospitable, nurturing to supportive programs leading to full-time employment. A broad-based advisory group should environment. also guide the design of educational and Community-based counseling and supportive services for adults. An educa­ employment outreach centers, home- tional continuum should be developed An early-childhood development pro- ownership counseling and training, that brings together basic adult ser vic­ gram in the community should be estab­ and entrepreneurship training might es—from GED programs and tutoring lished if one does not already exist, be offered at the neighborhood family through job-readiness training and job along with flexible childcare drop-in center to help families build economic finding to educational programs focus­ services convenient to parents who opportunities and assets. ing on job retention and advancement. choose to avail themselves of educational and employment services, providing Housing is the most basic of family A major component of such an ef fort will additional incentive for such activity. needs for which the housing authority is be the establishment of a continuing edu­ In fact, the neighborhood family center responsible, and it is on issues of basic cation center that serves local employers, could be built around such a childcare shelter that families in HOPE VI pr ojects managers, and aspiring entrepreneurs. drop-in center. But the center should may need reassurance. News of impend­ Such services may be provided onsite or be developed specifically with early ing demolition often spawns rumors by referring residents to other resources childhood activities in mind. and anxiety among potentially affected in the community.

Chapter 3 65 HOPE VI: Community Building Makes a Difference

families. The housing authority should pate in activities related to HOPE VI A number of different activities might make it clear that it will meet the needs planning and development by working be used to increase commitment to the of all residents affected by demolition with the resident council, holding open community and control over community activities, by giving them priority place­ meetings, conducting resident surveys, conditions by residents. These might ment in other public housing projects, and providing technical and leadership include neighborhood celebrations and providing vouchers for Section 8 hous­ training to interested residents. festivals that celebrate community assets ing, or eventually relocating families in and successes, the creation of a commu­ Resident involvement is typically cen­ the revitalized HOPE VI site. Opportunities nity archive and sharing of community tered in an elected resident council. for homeownership and prehomeowner­ history in some formal way, leadership The housing agency should take steps to ship training also should be identified training programs, or the establishment ensure that the resident council is truly and promoted among residents. of a community resource directory. representative of the community. HUD Nonprofit partners should be sought to further requires that all affected residents A leadership training program provider, help develop and market properties. A be given reasonable notice of all meet­ such as a local community college or housing authority may even be able to ings concerned with HOPE VI planning civic organization, may carry out the convert some of its own underutilized and implementation and that they be training program for resident representa­ housing stock into homeownership given adequate opportunities to offer tives, preferably at an early date and on- opportunities for residents, while creative input. Such meetings must be open to site or at a convenient location. Training financing arrangements with foundations, all affected residents and their representa­ should include goal setting and the art banks, or other lending institutions, as tives. Cultural differences among resident of running an effective meeting. HUD well as sweat equity arrangements, can groups must be frankly acknowledged also carries out extensive resident help make such opportunities affordable. and considered in all planning and training workshops. community processes. The housing Working together, the housing authority authority must also help residents to and the resident council should set both contact a legal aid attorney and any long- and short-term goals, with bench- other consultants they wish to have marks for evaluating success. Resident present at these meetings. leaders should strive for a sense of or der It is critical that residents get involved and purpose at all meetings. Success and line up technical advisors at the ver y with practical, short-term tasks can beginning of the process so they will be build confidence among residents. The Resident leaders give back to the community thr ough prepared to grapple with and respond in housing authority should take steps to participation in the Rosewind Resident Council. Left to right: an informed manner to each set of deci­ foster respect for residents among its Treasurer Karen Rogers, Secretary Edwina Rogers, and President Jackie Broadus. sions that need to be made. The housing staff, support resident initiatives, authority has final decisionmaking encourage the contributions of individu­ authority regarding HOPE VI funds, but als, and celebrate small successes. A Resident Engagement it is imperative for the sake of the ongo­ paid community-building facilitator can HUD requires the housing authority to ing relationship that the input and coop­ foster discussion around core values and consider the advice, counsel, recommen­ eration of residents be sought before any priorities for the community and plan dations, and input of residents and the significant changes, such as demolition events to bring the public housing com­ surrounding community in its decision or major planning studies, are author­ munity together and build bridges making throughout the development ized. The housing authority may also beyond it. want to conduct resident surveys as process and in designing and carr ying The resident council should build a new 2 another way of obtaining relevant input out support services. HUD has charged spirit of cooperation among all the r esi­ from all of the affected residents. housing authorities with ensuring that dents and urge them to lay aside old residents have opportunities to partici­

2“Resident and Community Involvement,” in FY 1998 HOPE VI Guidebook. Washington DC: U.S. Department of Housing and Urban Development, 1998.

66 Chapter 3 HOPE VI: Community Building Makes a Difference

Exhibit 3.1

The Role of Residents in HOPE VI: HUD Guidelines

The HOPE VI program is founded on four principles with the revitalization plan. It may be necessar y to simplify or regard to the involvement of residents affected by demoli­ explain certain technical concepts and to use translators in tion and new construction: collaboration, inclusion, cases where English is not spoken. Some housing authori­ communication, and participation. These principles also ties have found that a regular HOPE VI newsletter is an form a guide to resident participation outside the HOPE VI effective means of keeping residents (especially those who context. are temporarily relocated) updated and connected to the revitalization process. Collaboration Participation Ideally, the housing authority and residents will be able to come together and develop a common vision. Residents Residents should be encouraged to participate in the plan­ must be invited to work closely with the housing authority ning and implementation of the entire process—including, in all phases of HOPE VI—from preparation of the applica­ for example, sitting on the selection panels that choose tion and planning through implementation and operation development partners and consultants; attending meetings of the revitalized housing community. with the development team, program manager, public and private lenders, the city, and other partners; and taking an Inclusion active role in working or advisory groups. To ensure their meaningful participation, the housing authority must pr o- The housing authority is responsible for communicating vide training (generally through community partners) to with and disseminating information to all af fected residents residents on the fundamentals of technical development and ensuring that all affected residents have opportunities issues. Residents and housing authorities should work to participate in the activities related to the HOPE VI together to identify specific needs and appr opriate sources planning and development process. Resident councils must of training to meet those needs. see themselves as representatives of the public housing The role of the resident organizations will change with the community at large, keep the other residents informed of evolution of the rebuilding process. It will focus on such developments, and bring their concerns to the housing issues as monitoring ongoing compliance, capital impr ove­ authority. In mixed-income communities ways must be ments, maintenance, supportive services, and sustaining found to represent the interests and concerns of non-public the new sense of community. Public housing developments housing residents. that become mixed-income communities will present special concerns in such areas as representation, community strate­ Communication gizing, and establishing new priorities for action. The chal­ The housing authority must develop a public information lenge, however, will continue to be finding ef fective ways to strategy that provides for regular communication and infor­ engage residents at every level and at every phase in the life mation sharing with the residents regarding all aspects of and future of their community.

SOURCE: EDTEC, Inc. Establishing a Meaningful Role for Public Housing Residents in the HOPE VI Development Process, Camden, NJ. 1999. Prepared for a series of workshops in June 1999.

Chapter 3 67 HOPE VI: Community Building Makes a Difference

HOPE VI and Community experience. However, one simple lesson Building overarches them all: the HOPE VI community-building approach can be Since the framing of the initial legisla­ made to work under the right cir cum­ tion, HOPE VI has rested on the twin stances. This is no small accomplish­ pillars of community building and phys­ ment. The discretion granted by HOPE ical revitalization. The stories of the VI requires significant changes on the seven best practices sites (chapter 2) part of housing managers, many of and the wide range of examples in the whom have worked in a highly con- appendix show the community-building strained and regulated environment for approach in action. These examples decades. HOPE VI requires courage and from many different settings illustrate determination on the part of residents Family takes pride in their HOPE VI home. the flexibility of this approach, its and their families. Finally, the program orientation toward assets rather than also requires creativity and entrepre­ problems, its goal of providing individual neurialism from housing authorities, res­ disappointments and resentments and opportunity for residents, and its empha­ idents, and community groups. These move forward to a new relationship with sis on developing viable, responsive stakeholders in communities all around management. Constantly bringing up institutions to benefit public housing res­ the country are learning how to work old promises that were not kept—a new idents and the surrounding community. together to coordinate programs; craft sink that was never installed, a light fix­ Community building recognizes that one complex, service-intensive partnerships; ture that was not repaired—only gets and leverage many types of public and in the way of new business and perpetu­ size does not fit all—that program flexi­ bility, local discretion, and wide-ranging private resources. Through the HOPE VI ates negative feelings. Keeping affected community-building approach, these residents updated on the progress of innovation are required to fight poverty and transform distressed communities. ambitious partnerships are providing revitalization, and making sure they new opportunities, building social and have a realistic appreciation for what is This chapter has drawn out many personal capital, and defeating poverty involved at each stage, can help alleviate practical lessons from the HOPE VI in their own communities. ❖ anxieties and defuse impatience.

68 Chapter 3 HOPE VI: Community Building Makes a Difference

Appendix Best Practices Using a Community-Building Approach to Self-Sufficiency

his appendix contains a number of the ability of the community to nurtur e Tbest practices that effectively use and support its members. community-building principles to help Research has shown that persistent people move toward self-sufficiency. poverty, the kind that endures over They are also cause for optimism, for many years and may be passed fr om one they show that public housing authori­ generation to another, tends to be found ties and resident councils, working in neighborhoods where social support together and in creative collaborations systems have broken down. The health with other community partners, can or dysfunction of community at the local make a difference. level, it seems, has a great deal to do Most of these examples are drawn from with the ability or inability of r esidents HOPE VI public housing sites around to have their needs met and to advance the country. These have been supple­ out of poverty.1 mented by others that, although they ar e Indeed, the much-discussed breakdown not from HOPE VI sites, illustrate com­ of the family is increasingly being under- munity-building techniques. All of these stood as a result of the cultural and eco­ examples reflect the fundamental insight nomic isolation of a whole community. that the prospects of individual residents Without the support that a healthy com- are strengthened when you improve

1Anderson, Elijah. “Neighborhood Effects on Teenage Pregnancy,” in The Urban Underclass, Christopher Jencks and Paul E. Peterson, eds. The Brookings Institution: Washington, DC, 1991. Borjas, George J. “Ethnic Capital and Intergenerational Mobility,” Quarterly Journal of Economics (February 1992): 123–150. Case, Anne C. and Lawrence F. Katz. “The Company You Keep: The Effects of Family and Neighborhood on Disadvantaged Youths.” Working Paper No. 3705. National Bureau of Economic Research: Cambridge, MA, 1991. Cohen, Sheldon and S. Leonard Syme, eds. Social Support and Health. Academic Press: New York, NY, 1985. Crane, Jonathan. “The Effects of Neighborhoods on Dropping Out of School and Teenage Childbearing,” in The Urban Underclass. Christopher Jencks and Paul E. Peterson, eds. The Br ookings Institution: Washington, DC, 1991. Higgins, Donna. Unpublished study. Centers for Disease Control and Prevention: Atlanta, GA, 1995. Jencks, Christopher and Paul E. Peterson, eds. The Urban Underclass. The Brookings Institution, Washington, DC, 1991. Kemmis, Daniel. The Good City and the Good Life. Houghton Mifflin: Boston, MA, 1995. Light, Ivan. Ethnic Enterprise in America. University of California Press: Berkeley, CA, 1972. Portes, Alejandro and Julia Sensenbrenner. “Embeddedness and Immigration: Notes on the Social Determinants of Economic Action,” American Journal of Sociology 98: 1320–1350. Putnam, Robert D. Making Democracy Work: Civic Traditions in Modern Italy. Princeton University Press: Princeton, NJ, 1993. Smith, Steven Rathgeb. “Social Capital, Community Coalitions, and the Role of Institutions.” Unpublished manuscript pr epared for delivery at the annual meeting of the American Political Science Association, New Y ork City, September 1–4, 1994. Williams, Redford B. et al. “Prognostic Importance of Social and Economic Resour ces Among Medically Treated Patients with Angiographically Documented Coronary Artery Disease,” Journal of the American Medical Association 267 (January 22/29, 1992): 520–524.

Appendix 69 HOPE VI: Community Building Makes a Difference

munity lends families in many aspects of ■ Engaging residents in the life and using trainers and mentors from a par­ their lives—such as education, health- prospects of the community. ticular company. They can also provide care, employment opportunities, and an opportunity for business executives The best practices that follow illustrate reinforcement of self-esteem—families to get to know public housing r esidents some of the many innovative ways in have difficulty functioning properly.2 and see their value as employees. which HOPE VI communities and other These best practices show how the public housing developments are carry­ It must be kept in mind that it is not principles of community building— ing out these four crucial functions of merely a matter of finding work for peo­ resident involvement, targeting of efforts, the healthy community. Each category is ple, but of helping them acquire the building on assets, thinking comprehen­ prefaced by a few short remarks high- people skills or personal development sively and integratively about the needs lighting the kinds of activities that can that will allow them to keep those jobs. of people, using social interactions to lead to progress in that area and some of Addressing personal or family problems build social capital, and forging partner- the assets and resources these communi­ that could prevent residents from suc­ ships with entities in the larger commu­ ties have found helpful in addressing ceeding at employment is also critical nity—can make antipoverty initiatives those challenges. to any serious workforce initiative. much more effective than programs that Demolition, rehabilitation, and construc­ focus narrowly on, for example, jobs tion projects undertaken under HOPE or housing. Lack of access to VI, through Section 3 provisions, can Lack of access to a decent education or a decent education provide jobs and apprenticeships in the to training in marketable skills limits building trades. Residents and resident or to training in one’s ability to obtain and keep a job. organizations can take advantage of A young mother who cannot find af ford- marketable skills other opportunities related to physical able, dependable childcare will have rebuilding, such as moving services, trouble staying employed. Any number limits one’s ability tracking relocated residents, and provid­ of difficulties may seem overwhelming: to obtain and ing construction site food service. a chronic health condition in need of Community service can provide a train­ careful management, a child with special keep a job. ing ground for residents where they can needs or school problems, substance learn marketable skills, practice good abuse or violence in the home, or work habits, and establish a track r ecord uncontrolled crime and drug activity Employment of constructive activity. Community col­ in the neighborhood. Thus, the bigger When he runs into people who despair of leges and other groups with expertise picture—and the needs of the entire giving breaks to public housing residents can develop training or technical assis­ family—must be kept in mind in craft­ because “they will only disappoint you,” tance for residents who want to start ing a realistic initiative aimed at creating Michael Grey, himself a San Antonio public their own businesses. self-sufficiency. housing resident and a successful entrepre­ By helping to stabilize the neighbor­ Similarly, in order to support families in neur, finds himself thinking, “What if there’s hood—reducing crime, increasing their aspirations for a better life, a com­ at least one person? Because if you can find homeownership and building communi­ munity needs to function effectively in that one person and help them get started, ty facilities—HOPE VI projects tend to four areas: and other residents see them being success­ encourage development and therefore ■ Providing opportunities for ful, then others will want to follow.” increase employment in surrounding employment. Partnerships with businesses, govern­ areas. An employment strategy is apt to be more effective, therefore, if it takes ■ Education. ment, and local nonprofit agencies are a key component of a successful employ­ this larger picture into consideration. ■ Meeting families’ needs (including ment program. Such collaborations can It should also focus on specific goals. healthcare, childcare, youth recre­ provide actual positions for which resi­ Activities in the area of employment that ation, and other services). dents can be specifically trained, often should be encouraged, for example, are those that:

2The Cleveland Community Building Initiative. The Report and Recommendation of the Cleveland Foundation Commission on Poverty . Cleveland, OH: Mandel School of Applied Social Science, 1992, 97–115.

70 Appendix HOPE VI: Community Building Makes a Difference

■ Reconnect the resident labor force tion development to a centralized the onsite construction jobs. The pro- to the mainstream job market. job bank. gram also implemented ongoing job development and placement efforts ■ Create access for residents to effec­ ■ Community colleges or nearby across Pittsburgh. tive training and job-placement universities willing to provide entre­ programs that lead to genuinely preneurship classes (if possible, At Allequippa Terrace, HOPE VI training marketable skills and real jobs onsite) and technical advisors to programs include educating students with a future. residents interested in starting about computers, improving basic and their own businesses. academic skills, and developing com­ ■ Address personal and other barriers munication and interpersonal skills. likely to impede progress toward ■ Available funding to pay residents Additional training programs cover the self-sufficiency—such as lack of for performing community service construction trades and other technical transportation or childcare, sub- projects, coordinating that work, and specialized skills. stance abuse or other health-related and providing necessary training problems, educational deficits, and or supervision. Residents learn job-readiness training, attitudinal or motivational problems. résumé writing, and interviewing skills. ■ Large-scale public housing Life-skills counseling and behavior and ■ Reestablish the community as a construction, demolition, or self-esteem building are also available. competitive business location. rehabilitation projects. The Allequippa Terrace HOPE VI com­ ■ Provide entrepreneurship training Some examples of best practices in this munity and supportive services staff and ongoing technical assistance program are in public housing commu­ work to ensure that such essentials as and advice for residents who wish nities around the country follow. childcare and transportation to and from to start a business. work are in place. ■ Maximize opportunities for HOPE VI Spawns Jobs A HOPE VI employer advisory commit- employment, service provision by at Pittsburgh’s tee advises on employer needs and residents, and career training expectations, oversees the development generated by HOPE VI demolition, Allequippa Terrace of job preparation curricula, and rehabilitation, construction, and In just the past 3 years, mor e than helps cultivate job opportunities for associated programs. 200 residents of Allequippa Terrace, Allequippa Terrace residents. The com­ The kinds of assets and resources that a HOPE VI site in Pittsburgh, Penn­ mittee includes program funders, com­ could help foster such activities would sylvania, have secured employment. munity residents, educational institution staff, and local employers. include: The keys to success, say residents and ■ Employer-driven or union-run housing staff, have been starting with The well-coordinated effort has paid off. training programs (with curricula jobs that were already available or about Of the 200 residents who have obtained and standards set by the employers to become available, matching residents’ jobs through the program, 189 are cur­ or unions), especially those willing aptitudes and skills with these opportu­ rently employed at an average wage of to invest in residents’ skill develop­ nities, helping them acquire needed $6.78 per hour. Of these, 133 are full- ment over several years and to of fer skills, and addressing personal barriers time, 43 are part-time, and 13 are tem­ individuals more than one chance and family needs that might have porary employees. Another payoff: the to succeed. hindered success. young people and other residents of Allequippa Terrace now see 189 of their The physical revitalization of Allequippa ■ Meaningful employment opportuni­ neighbors getting up every morning to Terrace opened positions in property ties in surrounding neighborhoods. go to work and coming home at the end management, resident services, and resi­ ■ of the week with a paycheck and an air A lead labor force development dent relocation services for those affect­ of greater self-confidence. organization that could provide a ed by the HOPE VI demolition. The whole continuum of services from housing authority ensured that interest­ job-readiness training and motiva­ ed residents had a chance to apply for

Appendix 71 HOPE VI: Community Building Makes a Difference

Resident Entrepreneurs HOPE VI relocation, Muhammed and Resident-Owned Establish a Profitable seven other residents helped the housing Construction Business authority move 30 residents in 30 days. Employment Agency Is Building a New Future It all began, says Muhammed, with a in Chester modest planning grant from the Chester in San Antonio In the HOPE VI community of Lamokin Housing Authority, under its HOPE VI “People in public housing, you can’t give Village in Chester, Pennsylvania, resi­ program, to do a business plan. up on them. They’ve been so down and dents have formed a company that places “The accounting department helped us depressed so long, some of them ar e other public housing residents in training understand payrolls, W-2 forms, and suspicious about any hand that is and job opportunities. In all, the r esident immigration forms. They contracted stretched out to them. But reach out company is responsible for some 66 new with someone to teach us how to run anyway. They may surprise you. And jobs. “We were all on welfare,” founder a business. themselves.” Barbara Muhammed comments, “and These are the conclusions of Michael now we’re all working.” McBLWT, as this Grey, founder of McGee’s Construction resident-owned corporation is known, “We were all on in San Antonio, Texas. The company, was originally created to do landscaping which did more than $200,000 worth and maintenance in the five housing welfare … and now of business last year, began as a resident- complexes for which it is named: we’re all working.” owned enterprise in the Wheatley Court McCafferty (Ruthel), Bennett, Lamokin public housing development. The con­ Village, William Penn, and the Towers. struction company is an example of how Resident leaders from each complex McBLWT used an automated data pro­ a housing authority can use its own came together to form the corporation. cessing firm to handle check writing, needs coupled with a rigorous training “We get along well,” says Muhammed, payroll, and taxes. Muhammed cautions course in entrepreneurship to successful­ formerly president of the resident coun­ resident businesses to get a lawyer and ly launch a resident-owned business. At cil, “because this is a small, homebody keep tax payments current. present, McGee’s (the title is a play on type of town.” “We started with no money. Today Grey’s initials) has four contracts with McBLWT employs 15 staff members we have $50,000 in the bank,” says the San Antonio Housing Authority as who are paid an average of $7 an hour. Muhammed. “I attribute it all to good, well as several other outside contracts to It was in the course of training r esidents tight management and a high employee do roofing, fencing, and lawns, and to do landscaping and maintenance retention rate. We’ve never had a lapse in make apartments ready for new tenants. work, and mentoring them in such job- service or payment, which is often a pr o­ Grey won the Entrepreneur of the Year readiness issues as promptness, lan­ blem with resident-owned businesses— Award from the San Antonio Housing guage, dress, and business etiquette that defaulting and being inconsistent.” The Authority and the Resident Success group members realized they could also housing authority’s willingness to pro- Award from the National Association of be preparing residents for other jobs, vide a full range of technical assistance, Housing Redevelopment Officials in leading to expansion into other areas. she says, is a big factor in McBLWT’s 1999. McBLWT created a 4-week training pro- success. The resident entrepreneurs also McGee’s employs five other public hous­ gram for residents leading to certifica­ drew on two local colleges, Swarthmore ing residents, one full- and four part- tion in asbestos removal through union and Widener. The colleges “reached out time. Two former employees have moved local 413 and has trained 11 persons to us and made it clear they ar e on on to start their own businesses, and thus far. McBLWT continues to work board for HOPE VI.” The experience Grey and his foreman have moved out with the union on training in general seems to have stimulated resident of public housing and into a new, construction. The Chester Housing leaders to think about other possible independent life. He hires high school Authority employs four other residents opportunities—for example, creating a students from the Sutton Homes, trained by McBLWT as part of the tenant CDC to build housing in the ar ea. Willow Courts, and Victoria Courts maintenance and custodial force. During developments to work weekends, in the

72 Appendix HOPE VI: Community Building Makes a Difference

summer, and after school. “I tr y to talk “When I first got some money, I had to licensed plumbing and electrical work to them and show them that it can be learn how to slow down, to save and that comes to qualified contractors. different for them, too,” he says. “If they invest it. One thing Stephanie taught me The HOPE VI-funded preapprenticeship don’t have their GED, I encourage them was to save and think about tomorr ow. training program began in December to get it.” Before this program, I was always hus­ 1998. The local community development tling. But hustlers only know how to In 1994 Grey was one of several resi­ corporation and Premier Development get in and get out. Here they teach you dents hired to work on a construction provided the training. Of the 63 r esi­ how to get in and stay in,” he continued. crew under a maintenance program dents who enrolled, 28 completed the “There’s something to be said for making funded by the housing authority’s preapprenticeship training and found money in the right way. I get positive Department of Economic Development construction jobs. Of these, 13 were publicity now, and no one can take (DED). Grey impressed housing authori­ hired by the partnership. Five who did my money away from me.” ty staff with his initiative and hard work. not immediately find construction work When the job ended, the housing temporarily took jobs doing maintenance authority offered him a full-time job as In Kansas City, Residents work through Premier Development. a maintenance helper. It was Stephanie Organize To Gain Before entering the preapprenticeship Robinson of DED, he recalls, who first program, residents underwent assess­ encouraged him to consider starting a Construction Skills ments by the Full Employment Council, business of his own. and Subcontracts a privately run organization in Kansas “They needed someone to do pavement Getting organized early—and getting a City that manages U.S. Department of and cement,” says Grey, “so they hired good handle on the jobs that would be Labor welfare-to-work funds and other someone to teach us how to do that. involved in HOPE VI construction at funds related to job training and place­ Stephanie got me in the program, helped Kansas City’s Guinotte Manor—paid ment. A 3-day job-readiness class intro­ me get some contracts within the hous­ off for the Guinotte Manor Tenant duced participants to the construction ing authority, and helped me find some Association (GMTA). The tenant group industry and job readiness, including employees.” The housing authority set up a resident-owned limited-liability topics such as attitude, dress, punctuali­ provided classes on negotiating con- partnership with Premier Development ty, money management, and work site tracts, marketing, finding and re­ Group, an experienced private construc­ safety. (Participants had to test drug taining employees, and bookkeeping. tion contractor. GMTA holds a controlling free.) In an 8-week intensive course, Seven other residents also completed share (51 percent) in the partnership, Habitat for Humanity provided hands- the course. which provides management support on experience building new homes with and training for residents. This arrange­ the program furnishing transportation The best part of the program, according ment enabled GMTA to subcontract with and lunches. to Grey, is that “you can continue to the general contractor at Guinotte Manor draw on its expertise and technical assis­ The 28 graduates became, in effect, a for the construction of three townhouse tance for up to 2 years after graduation. talent pool of available pretrained work­ apartment buildings, a job worth The first year, you can use it as much as ers from which the contractor and sub- approximately $1 million. you want.” contractors could draw to meet Section The partnership has so far bid on and 3 requirements for hiring low-income Grey says he also learned a lot by won $200,000 worth of contracts with residents on HUD construction sites. attending HOPE VI conferences. “That’s the Housing Authority of Kansas City when I realized the program was really The housing authority also contracted (HAKC), Missouri, for janitorial work good, more advanced than others. In the with the partnership to train two and lawn care at five projects. San Antonio program, they get more residents to fill administrative and involved with us—and stick with us. To fulfill these contracts, the partnership operations construction management You can tell that they enjoy their work. hired 13 residents, all graduates of positions associated with HOPE VI They give us advice, watch us, and help HAKC’s preapprenticeship training pro- revitalization. us correct our mistakes. gram. The partnership subcontracts the

Appendix 73 HOPE VI: Community Building Makes a Difference

In Los Angeles, Homeboy sweatshirts, mugs, and caps. The baker y plumbers, laborers, electricians, and con­ Industries Points Gang has had financial struggles, but was servation corporation employees, and in saved by a $150,000 grant from KPWR, other areas. Youth Toward Jobs a local radio station. It is now under In March 1998, after several develop­ contract to bake 600 loaves of br ead a for a Future ments had become HOPE VI communi­ day for Fresco Baking Company. Nothing stops a bullet like a job. ties, the program expanded and the The employment project is a partnership conservation corporation began to pro- That was the idea behind the cr eation of among Dolores Mission Church, vide Pico-Aliso youth with entry into Jobs For a Future (JFF), an employment Proyecto Pastoral at Dolores Mission, seven building trades. The corporation center for at-risk youth in east Los residents of Pico-Aliso, the Housing strengthened the program’s educational Angeles. In the early 1990s, residents of Authority of the City of Los Angeles, and component and intensified case manage­ the Pico-Aliso neighborhood of east Los police and education agencies. Proyecto ment support. Training includes a college- Angeles were troubled by what they saw Pastoral houses and monitors the RAP bound component. Supportive services as an increase in violence and gang program, a mentoring program that include mentoring, career development involvement among their youth. The helps youth who have been released counseling, healthcare, transportation, Pico-Aliso area contains four HOPE VI from jail or detention camps make a suc­ and childcare. Program activities include sites: Pico Gardens, Aliso South, Aliso cessful transition through mentoring, outreach, recruitment, training, and North, and Aliso Village. counseling education, and job training. hiring of corps members. JFF provides If young people had jobs, the r esidents JFF also offers the Clean Slate tattoo extensive outreach and recruitment were convinced, they would be less removal program, which gives a fresh efforts for former and current gang likely to become involved in these start to young people who want to trade members age 18 to 23 from Pico dangerous and self-destructive behaviors. their old street identity for a career with Gardens and Aliso Extension. The Pico So residents worked with Father a future. Aliso resident council assists with Gregory Boyle of Dolores Mission, recruitment efforts. Because of Homeboy Industries, former a local Catholic church, to create members of warring gangs now may be Working closely with the East Los employment opportunities. seen working side-by-side. “Guys who Angeles Skills Center, the conservation It began with community service. Crews used to shoot each other are working corporation instructs participants in the of at-risk youth were paid to perform together,” says Father Boyle of Dolores basics of construction-related jobs, giv­ community improvement tasks such as Mission Church, clearly enjoying the ing them skills training and hands-on gardening, light construction, and graffiti picture. “What could be more symbolic knowledge of various tools. The project’s removal. Building on these positive work of a new beginning than seeing enemies 24 hours of instruction alternate 1 week experiences, JFF made referrals to preap­ working side-by-side?” of community service with 1 week of prenticeship training programs at the individualized academic classes. housing authority and elsewhere, there- Community-based work experience by placing 260 high-risk youth in jobs in Gang Members Move on to training projects include refurbishing a 1998 alone. Of the employed youth, 70 Careers in Construction at single-family home with the East Los percent (180 of 260) were still employed Los Angeles’ Pico-Aliso Angeles Community Corporation; tree after 30 days. Development plantings, landscaping, and garden bed construction for Dolores Mission In 1992 the agency established Home- Since July 1996, the Los Angeles Con­ Church; repairing the East Los Angeles boy Industries. Homeboy Industries cur­ servation Corporation and the Housing Skills Center’s irrigation system; and rently operates three community-based Authority of the City of Los Angeles have assisting the housing authority mainte­ enterprises: a silk-screening business, a provided preapprenticeship training in nance staff with repairing, painting, and bakery, and merchandise featuring the the construction trades to Pico-Aliso cleaning vacant units. Participants Homeboy logo. This small business youth. Of the 22 young residents who receive a stipend while attending school will log $500,000 in sales this year. have enrolled in the program, 17 and wages for work performed. The Los Merchandise income totals approximate­ (including some former gang members) Angeles Skills Center provides educa­ ly $6,000 per month from tee shirts, now hold full-time jobs as carpenters, tional assessments; GED, college, or

74 Appendix HOPE VI: Community Building Makes a Difference

trade school preparation, and English as 150 were interviewed and 72 were Since the majority of participants are a second language classes. The program selected as participants. women, the program has been diversify­ provides tools, uniforms, safety gear, ing its vocational offerings to include ■ There have been 67 full-time job and a toolbox outfitted with appro­ educational services, hospitality, and placements at an average starting priate equipment. Graduates get grants building inspector training. “We have wage of $8.28 an hour. for education. also had to structure our program so ■ Forty-three apprentices have that it works for women by building in At the end of the preemployment phase, entered construction trade unions; things like childcare and other support­ the youth can enter apprenticeship pro- 22 of those are enrolled in union ive services,” says Little. “We try to take grams offered by one of the building apprenticeship programs. a family-centered approach. We ask our- trades unions, pursuing specific careers selves what can we do to keep the family (given their interests and abilities) as ■ After just the first year, the state on the right track while the mother goes carpenters, painters, electricians, reported that it had benefited from to work. If the kids are doing well in plumbers, or laborers. The housing $96,000 worth of subsistence/ school, then she won’t worry and can authority provides referrals to union benefit reduction. concentrate on her job.” Through a apprenticeship programs and employ­ ■ Eighty percent of each class success- special arrangement with the U.S. ment opportunities on Pico-Aliso con­ fully completes the program and is Department of Health and Human struction sites and continued case placed at jobs with a wage at or Services, childcare and Medicare management services. above $8 an hour. benefits continue for 21 months after the mother enters the program. In Baltimore, the Housing Participants are assigned to building Authority and the Unions “We try to take a rehabilitation work sites and HOPE VI- STEP-UP to the Challenge funded construction sites. Each STEP- family-centered UP apprentice is assigned to work with The secret to the success of the Housing approach. We ask our- a union-affiliated journeyman on a Authority of Baltimore’s STEP-UP pro- one-to-one basis for 60 to 90 days. gram, director Samuel Little believes, lies selves what can we Apprentices rotate through several in the one-on-one relationships between do to keep the family different trades during the course of the public housing residents and skilled yearlong program. By year’s end, they union journeymen. on the right track will have completed 144 hours of trade- Getting the unions involved in the pr o- while the mother related training as well as classroom gram, says Little, was not all that har d. instruction, literacy classes, and career “We pointed out how much construction goes to work.” development activities. business was brought into town by the While working at the construction sites, housing authority. ‘If you want a piece participants attend evening classes. of this,’ we said, ‘you have to change After acceptance into the program, par­ ticipants begin a 2-month preemploy­ Participants lacking a high school business as usual.’ And it has worked diploma must study toward their GED, well.” Residents are paid to learn high- ment training to introduce them to the trades they will learn. They receive safe­ others may take remedial courses in demand skills and gain entry into the math or literacy. Counseling and support unions, which have expanded into the ty instruction and learn how to use basic construction tools and read a blueprint. services are available throughout the rental construction market and have, as program. A special Apprenticeship a result, been seeking to diversify their Training and certification in lead-based paint abatement and removal is also Assistance Program provides substance dwindling membership. The result, says abuse counseling. Little, has been a winning situation for included. Work-readiness training teach­ the unions and the housing authority: es workplace norms about matters such Initiated as a cooperative effort of the as punctuality, attendance, dealing with ■ union-affiliated Baltimore Building and Of the 300 residents screened by authority, and dealing with a gender and Construction Trades Council and the the Baltimore Jobs Training ethnically diverse workplace. Housing Authority of Baltimore City, Partnership Act Program (JTPA),

Appendix 75 HOPE VI: Community Building Makes a Difference

STEP-UP has since secured the coopera­ employment-readiness component and a daycare facility. These projects tion of the Baltimore City Public includes job shadowing (spending time became part of the 10-year strategic plan Schools, the Department of Social at the workplace observing a worker) developed by public housing residents Services, Baltimore City Community and sessions on time management, in collaboration with the Associacion de College, JTPA, and the Maryland career options, stress management, skills Puertorriqueños En Marcha (APM). Apprenticeship and Training Council. inventory, interview preparation, busi­ Today, 200 housing units have been The program has an advisory board of ness dress, and workplace development. completed, the daycare center is open, eight people that includes representa­ Local employers come to class to con- the homeownership project is getting tives of the residents, the unions, and duct mock employment interviews with under way, and many residents shop and the local welfare and JTPA agencies. participants. These interviews are video- work every day at Borinquen Plaza Retail taped so that students may later r eview Center. The center includes a 40,000- and critique them. Residents Schooled square-foot supermarket, a 4,000- in Career and Self- square-foot retail space, and another 2,500-square-foot plot set aside for Management at a Pima staff had future development. Tucson Community developed a network The Borinquen Plaza Retail Initiative cre­ College Are Getting— of education and ated 75 permanent jobs for community and Keeping—Jobs residents. In addition, 43 neighborhood employment services residents transitioning off welfare have HOPE VI staff working with the Connie and prided themselves received job training or employment Chambers HOPE VI community in experience. A career ladder is now in Tucson, Arizona, found an important on their 85-percent place for residents interested in super- resource in the form of nearby Pima market operations. Community College. Staff worked with job placement rate. the college to develop a preemployment Although Borinquen Plaza is not specifi­ class for both public housing and neigh­ cally tied to a HOPE VI site, it of fers a borhood residents: Career and Self- The 3-week course involves 90 hours of model for similar undertakings in Management. (Pima already had relevant classroom instruction and 30 hours of depressed neighborhoods where public experience through a similar program related activities. Family Self-Sufficiency housing residents and their neighbors titled Women in Progress, running program staff provide case management. are ready to begin to move toward under a contract with the city.) Pima As students enrolled at the community self-sufficiency as a community. staff had developed a network of educa­ college, all participants may access the How did it happen? In response to the tion and employment services and prid­ full range of services available to regular proposal by the resident/APM partner- ed themselves on their 85-percent job Pima students. Everyone who completes ship, Community Development Block placement rate. the course receives six college credits Grant funds provided the resources for from Pima Community College. The housing authority has offered the acquisition, demolition, and relocation. self-management course three times and The city department of commerce more than 40 students have completed Borinquen Plaza Retail provided funding for predevelopment it. Half have chosen to continue their Center in Philadelphia: activities and gap financing. The Local education with GED classes, courses at Initiatives Support Corporation (LISC) Pima, or specific job-training programs. Finding Jobs at the provided a 10-year, $1.4 million loan Supermarket at 5-percent interest as well as technical The curriculum bolsters personal devel­ assistance in the development process. The plan was developed in 1993 to sta­ opment and employment readiness. The William Penn Foundation and bilize a struggling inner-city Philadelphia The personal development component other private philanthropies provided community. It includes a new retail includes sessions on positive self-esteem, gap financing. organizational skills, learning styles, goal shopping center, 250 units of rental setting, and money management. The housing, homeownership opportunities,

76 Appendix HOPE VI: Community Building Makes a Difference

Other partners stepped up to provide for themselves and their children. of their children’s development and critical pieces. A grant from the city’s Schools are being challenged to address the role they can play. health and human services office helped a wide range of needs—from early The kinds of assets and resources that leverage jobs. Fannie Mae American childhood education to remedial and could foster and support such activity Communities Fund provided equity for continuing education for adults. might include: the project and the Wilmington Trust Successful schools tend to reach out Bank supplied permanent financing for beyond the school walls to enable fami­ ■ Families interested in being involved the project at 8-percent interest over 20 lies to provide effective educational in their children’s education. years. Philadelphia Works First, a private support in the home. This is done by ■ Residents, business people, and pro­ industry council (PIC), provided funds helping very young children acquire the fessionals willing to use their skills to employ people transitioning off wel­ skills they will need when they enter and resources to support school fare. Brown’s Thriftway, the company school and by supporting and reinforc­ activities and skill development in brought in to operate the new supermar­ ing school lessons. parents. ket, offered onsite training for communi­ There is no universally applicable for­ ty residents. APM coordinated activities. ■ Educators ready to commit time mula for effective urban education. and effort both in and outside the Borinquen Plaza now provides easy However, the neighborhood school can classroom. access to quality services and goods for a be a center for community-building community that has been without these activities. It is a place to which public ■ A facility of sufficient capacity to generally taken-for-granted amenities housing families can have easy access, support planned use without for 30 years. And the success of the where community groups can mobilize, overcrowding. retail center, which eliminated four and where a cluster of interrelated pro- ■ Innovative models for urban educa­ acres of urban blight, has opened the grams can be situated. These include tion, development of school staff, doors for the development of other programs that address the needs of and parent involvement. commercial ventures. neighborhood adults both as parents ■ and breadwinners. Atlanta’s Centennial Access to the resources and expert­ Place Elementary School illustrates ise of key resources—such as Education how, through partnerships with higher libraries, institutions of higher “Ask yourself: What’s the fundamental thing education institutions and institutional learning, cultural organizations, families look for in a neighborhood? If we support from the public school estab­ facilitators, and technical consult­ were going to turn this community around, lishment, an elementary school can ants—whose control lies outside it was clear we had to have a good school.” become a powerful magnet for creating the immediate community. a mixed-income community. ■ Tom Costello, Interim Executive Director, Facilities and other personnel that St. Louis Housing Authority Community-based activities in the area can provide early-childhood devel­ of education that ought to be encour­ opment supports. Education is universally acknowledged aged and fostered include those that: ■ as the key to opportunity, to economic Informal networks of residents with survival, to bettering one’s condition. ■ Encourage and enable high academ­ knowledge, skills, and time to Without a command of basic skills, ic performance, especially among invest in young children. (including standard English), a sense of elementary school children. ■ A core group of families headed how to evaluate and solve a pr oblem, ■ Provide educational readiness for by people interested in economic and some sense of how the parts of a preschool children. advancement and improved family society work, it is very difficult to func­ stability. ■ Expand educational opportunities tion as a productive citizen. ■ for adults—both to acquire the A group of professionals involved Families living in marginalized or dys­ training and skills development nec­ in adult education, job training, functional neighborhoods often have essary to get and hold a good job placement, and career development difficulty gaining access to the kind of and to grow in their understanding programs. education needed to realize their goals

Appendix 77 HOPE VI: Community Building Makes a Difference

■ A group of employers committed partnership with Johns Hopkins Medical Colliers and Pinkerton employees also to developing the human resources Center in East Baltimore, which provides donate children’s clothing and partici­ needed in their businesses. professional mental health staff. pate in school beautification projects. Through Colliers and Pinkerton, an ■ Physical facilities appropriate for As one of six Baltimore public schools in executive in private management began adult education. the New Schools Initiative, City Springs to work with City Springs’ principal as functions much like a charter school. Some examples of best practices in this a mentor. Last year Flanagan Brothers The school teaches by the innovative program area follow. Construction built a playground for the direct-instruction teaching method. school and Max’s Restaurant, in Fells, Direct instruction is a highly structured Point, raised $7,000 for new computers Children and Parents program that uses phonetics and recita­ through a golf tournament. Bell Atlantic tion in small groups to achieve reading Progress Together at has recently joined the group of mastery. With this method, many City corporate supporters. Baltimore Elementary Springs kindergartners matriculate School to first grade with a second-grade The school encourages parents to get Serving the whole family is the hallmark reading ability. involved with their children’s education, of Baltimore’s City Springs Elementary to upgrade their own skills, and to vol­ School, an innovative facility that ser ves unteer some of their time. “A lar ge num­ a wide range of children and adults The school encourages ber of parents come in mornings,” says Welchel. Ten to 15 of them assist with “regardless of background,” according to parents to get involved principal Mary Welchel. This includes breakfast and others come by to sit in on families living in two nearby public with their children’s the 10-minute morning assembly where classes talk about their accomplish­ housing complexes—Perkins and the education, to upgrade HOPE VI community of Flag House ments. Report card conferences with Courts. With the help of several com­ their own skills, and parents take place monthly. Family Fun Nights throughout the year provide an munity organizations and businesses, to volunteer some City Springs Elementary has brought opportunity for parents to come together together under one roof not only a stan­ of their time. with their children and their teachers to dard elementary school program but eat, chat, and play educational games. also primary healthcare services, mental A parent liaison program—a partnership healthcare services, opportunities for Community partners support the literacy with the Maryland Department of Social parent volunteerism, and classes in adult emphasis at City Springs. The school Services—trains parents to work as in- literacy and parenting skills. participates in Baltimore READS and class volunteers and counts those hours In recognition of the fact that children’s Reading by Nine, an initiative of The toward fulfillment of their Temporary health impacts school performance, not Baltimore Sun. Under the Books and Aid to Needy Families (TANF) work to mention families’ time and energies, Breakfast Program, volunteers read to requirement. The school has six children ranging from infants to 12-year- the children during breakfast. From 7:30 AmeriCorps volunteers, three of whom olds get comprehensive care at the a.m. to 4 p.m., AmeriCorps volunteers must come from the community. (Two school’s City Springs Wellness Center. coach students in reading, spelling, and years with AmeriCorps earns a 2-year A full-time nurse/wellness coordinator language in small groups. The 100 Book college scholarship.) One parent staffs the center. A nurse practitioner Challenge has students signing contracts who started as a volunteer is now a comes in twice a week; a pediatrician, to read 100 books yearly. There are field qualified teacher. trips to local bookstores, and publishers once a week. The center provides immu­ Welchel, who has guided City Springs’ donate books. At lunch time, volunteers nizations, treats children with asthma, transformation for the past 5 years, can from Colliers and Pinkerton, a real estate and dispenses and monitors regular and has transferred teachers who do not company that is a major partner of the medication including drugs for behavior take to the school’s program. Her biggest school, read aloud to third, fourth, and problems. Mental health needs of City dream, which she hopes to realize next Springs pupils are addressed through a fifth graders.

78 Appendix HOPE VI: Community Building Makes a Difference

year, is to have a special sixth-grade Jefferson Elementary School, located just ny donated (through the nonprofit class in the building—for girls only. across the street from Murphy Park (for­ COVAM) would cost only about $28 “So many of our children become single merly known as the George L. Vaughn after taxes. mothers,” says Welchel. “I’d like to have Apartments), was the obvious candidate. Baron managed to raise several million an academic program along with a lead­ With the end of mandated school busing dollars in corporate contributions, one ership component that could help them in St. Louis in sight, it was now possible observer recalls, but he also got some- see that they can have a life beyond to establish an elementary school that thing more: a moral investment. Having Perkins and beyond the Inner Harbor.” would serve the immediate neighbor- put their names and resources on the hood and draw strength from communi­ line, these companies and institutions ty involvement. Baron, a gifted civic now had a stake in seeing Jef ferson St. Louis’ Jefferson entrepreneur as well as a businessman succeed. Additional offers of help Elementary School: of recognized success, determined to soon followed. Transforming a commit his energies to Jefferson. But the Disadvantaged school, marked by decades of poverty, A community board hired a new princi­ busing, and neighborhood indifference, pal, Dr. Ann Meese, and the “upskilling” Inner-City School Into would require a major transformation. of the school’s faculty began. The a Community Asset The physical plant and curriculum were University of Missouri/Columbia helped behind the times. (A replacement for design a curriculum that would make It was the missing piece in the r evitaliza­ the 20-year-old mimeograph machine use of new learning techniques and tion of the Carr Square area of down- was one of the things on the staf f’s wish communications technology donated town St. Louis and the key to attracting list.) What chance to implement a mod- by area corporations. A Danforth grant larger numbers of working families to ern, cutting-edge curriculum, even if helped train Jefferson faculty in its use. the rebuilt Murphy Park housing devel­ funds were available, when 80 percent Southwestern Bell wired the school with opment, explains Richard Baron. Tom of the faculty had, by their own admis­ fiber optic cable and for access to the Costello, interim executive director of sion, never touched a computer mouse? Internet. Mercantile Bank helped install the St. Louis Housing Authority, agrees. an adult technology lab to assist in the With the cooperation of the housing “Ask yourself: What’s the fundamental transition to work. thing families look for in a neighbor- authority and the COVAM3 Community hood? If we were going to turn this Development Corporation—a kind of The St. Louis Department of Social community around, it was clear we had public housing “village” council— Services’ Caring Communities program to have a good school.” Baron rallied corporate, institutional, provided an anti-substance abuse coor­ and municipal backing for the project. dinator and a behavioral therapist. The For some time, Baron, president of Baron took his case on behalf of the school also linked up with an adjacent McCormack Baron & Associates, the Carr Square/Murphy Park community health clinic operated by the city of for-profit residential development and and Jefferson School to Civic Progress, a St. Louis. management company responsible for high-powered group composed of the the transformation of Murphy Park, had The local community responded enthu­ CEOs of St. Louis’ 40 largest companies, been hearing the same thing from his siastically. Of the 425 children enrolled the president of St. Louis University, the marketing staff: if you want to attract at Jefferson in spring 1999, 300 were mayor, and other influential persons. working- and middle-class families back from the immediate neighborhood, com­ Baron pointed out the tax advantages of into the inner city, convenience of loca­ pared to 75 previously. Meese hears contributing to a low-income housing tion, high-quality market-rate housing, inquiries about available housing in the development. He also successfully lob­ security, and expert management of the mixed-income community of Murphy bied for new legislation that would make property are not enough. In the end, Park from colleagues who would like to these contributions eligible for addition­ parents want to know about the quality get their children into Jefferson. The al state tax credits. Each $100 a compa­ of the schools. school is now equipping neighborhood

3COVAM refers to the names of the public housing communities it r epresents: Carr Square, O’Fallon Place (a nearby predominantly Section 8 development), and Vaughn Residences at Murphy Park.

Appendix 79 HOPE VI: Community Building Makes a Difference

children with the skills and positive self- center. In the San Francisco area, 13 expressed the want, need, and desire to esteem they will need to succeed. such centers are currently in the works, participate,” says Jeffries. “Everyone— including 5 at HOPE VI sites. residents and staff—has taken a look at “It’s the level of private-sector involve­ themselves and seen where they need ment,” says Meese, “that has given us the Such centers have already introduced improvement. Funding came from pri­ ability to address those barriers. I could 125 residents to computer applications. vate, corporate donors. We’ve had won­ not have done the things I’ve been able Classes are offered in Word, Access, and derful volunteers—former teachers, to do in this short period of time with- PowerPoint as well as e-mail and the students, engineers.” out that kind of support. Just having the Internet. A computer learning center dollars available to buy what we needed can also provide the tools (and coach­ In November 1998 CLC signed a memo­ made all the difference.” ing) for progressing on other fronts. randum of understanding with the city’s Unified School District. San Francisco Unlike the partners in Atlanta’s Cen­ “We have software geared toward GED State University agreed to provide not tennial Place Elementary—who were and SAT preparation,” says Belinda only technical assistance, but also tutors, given the green light to make sweeping Jeffries, director of the San Francisco- through the Office of Community changes in physical plant, curriculum, based Computer Learning Center (CLC), Service Learning. and staff—Baron and the housing a citywide program staffed by several authority had to work with an existing San Francisco area churches. “And we In spring 1999, with funding from cor­ facility and, with the exception of a have a résumé workshop for residents porate and private donors, the first CLC dynamic new principal, incumbent staff. that simulates an actual office. We also in a public housing community opened For that reason, however, what they help them improve their typing skills.” its doors at the HOPE VI site at Valencia accomplished is a model that could be Gardens. Adults attend morning classes The program appears to be cost-effective. realized in more communities. in computer literacy and job readiness; With Jeffries as the only paid staff mem­ youth come by in the after noon for The revitalization of Jefferson did not ber, volunteers do most of the actual computer work, tutoring, and informal occur as part of a HOPE VI pr oject. training. It is Jeffries’ hope that as resi­ counseling. They write articles for CLC’s However, its use of neighborhood organ­ dents attain proficiency, they will qualify newsletter, work on the Internet, or play izing and citywide resources to make a as trainer/coaches to staff 13 more cen­ educational games. There are 16 stu­ distressed local school into a community ters modeled on this one. dents in the program and 5 tutors. asset and an anchor for a new mixed- “The Hayes Valley HOPE VI site,” says income neighborhood represents the Jeffries, “will be our first fully designed kind of approach fostered by HOPE VI. Campus of Learners with a central learn­ Learning and Employment Indeed, the Jefferson story is already ing center and units wired for comput­ Come Together in Denver’s being replicated a mile away at the ers.” Jeffries has been in touch with a Darst-Webbe public housing project, Quigg Newton computer recycling company that has another community about to be trans- promised several hundred computers. By pulling together under one roof a formed into mixed-income housing wide range of services previously offered under HOPE VI. There, Carr Square area The first CLC was initiated 2 years ago at scattered temporary locations, the residents are working to upgrade the in a building at 18 Egbert Str eet, which new Learning Center at the Denver Blewitt Middle School. still houses CLC’s central office. Earlier Housing Authority’s Quigg Newton this year Jeffries and her colleagues real­ Homes is expected to dramatically ized that the demand was great while San Francisco Replicates increase the effectiveness of employment the course offerings were too limited, and life improvement activities. To date, Computer Learning and having only one location excluded 60 percent of the TANF residents have Centers at Five too many people. been helped to find employment. HOPE VI Sites When Jeffries suggested carrying the The Quigg Newton Community concept to as many as 18 public housing One type of facility that seems to hold Learning Center, made possible by sites, the residents liked the idea so well real promise for residents of public HOPE VI funds, is a place wher e public that they insisted on serving as a de housing trying to move toward self- housing residents and neighbors come facto planning committee. “They have sufficiency is the computer learning

80 Appendix HOPE VI: Community Building Makes a Difference together to learn, receive needed servic­ namese families reside, the housing Newark’s Soweto es, develop career opportunities, and authority is introducing a program Academy: Afterschool find new employment. It is also a known as Survival English. place to hold neighborhood meetings Learning for Life Also open to non-public housing resi­ and events. dents from the surrounding neighbor- The bell that ends the school day may The Basic Skills Lab, operated by the hood, the program will help participants mean that classwork is done for a while, Community College of Denver, provides learn to communicate what they need in but in Walsh Homes, a Newark, New career counseling as well as administra­ six life skill areas: healthcare, transporta­ Jersey, public housing development, tive support. There is a Family Literacy tion, housing, goods and services, em­ there are still important lessons to be Program as well as a HIPPY (Home ployment, and education. learned and somebody to make sure Instructional Program for Parents in young people learn them. Created in Youth) program, operated by Metro­ 1992 by two determined Walsh Homes politan State College of Denver. The Soweto Academy residents, Raymond Thomas and Dorothy Dobbins, Soweto Academy Denver Department of Human Services answers the need of provides TANF and food stamp services answers the need of resident youth to onsite. The local PIC and the Mayor’s resident youth to have have an afterschool “family” to teach them things they need to know in or der Office of Employment and Training offer an afterschool ‘family’ employment services. These programs to make it in a tough world. are funded entirely by the partners. to teach them things Supervised by a New Jersey-certified The Learning Center houses a Head they need to know in teacher with more than 20 years of Start program that accommodates 80 experience, the afterschool program is a children. Catholic Charities operates a order to make it in safe environment in which youngsters childcare center for 100 children, infants a tough world. can play and continue to lear n. With an to school age, and trains residents to be average daily attendance of 40 students, childcare providers. the academy’s deeper purpose is pre- The Della Lamb Community Services venting substance abuse, defusing or HOPE VI provided funding for initial Agency is developing the curriculum correcting behavioral problems at support services in temporary locations under contract and in collaboration with school, and building life skills through along with a grant for construction. HOPE VI staff and residents. The ESL training and exposure to strong, positive The Mayor’s Office of Employment and project team includes a teacher, a bilin­ role models. Through conferences and Training provides computer equipment. gual resident hired to assist with the parent visits, academy staff also work In addition, partners lease space in the class, and an acculturation specialist. closely with parents. community center, with proceeds used The class will address specific needs to cover building maintenance costs. The academy recently received city identified by the residents themselves approval for the SunUp nutritional and respond to the needs of individual program. It is supported through Vietnamese Families in students as they arise. partnerships with the Newark Housing Kansas City Learn A field trip at the conclusion of each Authority, residents, and the Rutgers Survival English module will give participants firsthand Cooperative Extension’s 4-H program. experience, in the presence of mentors, Additional partnerships have been creat­ The inability to speak understandable in each life skill area. The resident assis­ ed with literacy programs at Bloomfield English can be a barrier to securing not tant will also act as case manager, sup- College and Lutheran Redeemer Church. only gainful employment but also basic porting and tracking the progress of Soweto Academy, now funded through services needed for survival. In Kansas class participants while conducting out- HOPE VI, will soon move into the new City’s Guinotte Manor housing develop­ reach to the community as a whole. Walsh Homes Community Center. ment, where a sizeable group of Viet­

Appendix 81 HOPE VI: Community Building Makes a Difference

Results have been so promising that the brings together 120 children, ages 5 to more satisfying and productive future Newark Housing Authority is looking to l2 years. in a program called Fresh Start. replicate the program at other housing The ensemble has played twice at the Geared specifically toward youth who sites. Seven Walsh Homes residents Luis A. Ferre Fine Arts Center, at many have been through the court system, work at Soweto Academy—six as teach­ government activities, and at commercial Living Classrooms’ Fresh Start program ing assistants and one as a maintenance shopping centers. Thirteen of the fledg­ uses an experiential approach to develop worker. As a result of this experience, ling musicians have been accepted as academic, social, and vocational skills. one teaching assistant has been able to students in the Escuela Libre de Musica Although not a HOPE VI program, Fresh move off welfare to a well-paying job. Ernesto Ramos Antonini, a select sec­ Start provides a model for working with ondary school operated by the Puerto troubled youth. Rico Department of Education. La Orquesta Sinfonica “Ten years ago,” says program director Juvenil in San Juan: The Orquesta Sinfonica Juvenil has been John Dillo, “we used maritime activities Getting Along in Time counted a success and the Corporation as the hook—building a boat, maintain­ for the Musical Arts—which developed ing a boat, sailing a boat. Ten years later, Music has a way of bringing people the project in cooperation with the we do some things differently. The mar­ together, even across cultural or eco­ Manuel A. Perez Elementary School, itime industry in Maryland has declined, nomic boundaries. This is the philoso­ the HOPE VI project, and La Nueva so we focus on construction and r epair.” phy behind the Orquesta Sinfonica Puerta de San Juan—is looking to The 9-month Fresh Start program is Juvenil (Youth Symphony Orchestra) replicate it elsewhere. of San Juan, Puerto Rico. The pr oject divided into five 8-week segments: brings together—into a single ensem­ ■ Segment 1. The toolbox module. ble—youngsters from the Crisantimos “We try hard to tie all Participants learn how to build a y Manuel A. Perez (a HOPE VI site) and tool box, receive a set of tools, and Ernesto Ramos Antonini housing devel­ of the classroom and learn how to use them. opments, two housing communities that ■ historically have been rivals. The pro- computer work to the Segment 2. Building chairs and gram’s goal is to use the experience of vocational piece. In selling them for profit. making music to foster self-esteem, ■ Segment 3. Construction skills. positive attitudes, community pride, and the chair-building ■ Segment 4. Boat building and more positive relationships among the module, for example, young residents of the two developments. repair for profit. the students themselves ■ The Corporation for the Musical Arts Segment 5. Internship. A job coordinates the program and provides decided to use the outside the shop. teachers, instruments, and uniforms. computers to create The program offers basic skills remedia­ The La Nueva Puerta de San Juan collab­ tion, GED classes, and computer classes. orative provides assistance with student marketing flyers.” “We emphasize education throughout recruitment and monitoring, transporta­ the whole program,” says Dillo. “We tion, development activities, and pro- would like our guys to leave with a gram management. In Maryland, Experiential GED, but some enter at only a fifth- grade level, so they spend many hours Monday through Friday, students at Education Gives Adjudicated Perez Elementary study music apprecia­ in the classroom.” tion, reading music, and playing instru­ Youth a Fresh Start One day a week is devoted to computer ments. They practice in classrooms The Living Classrooms Foundation, class—learning basic keyboarding, made available for that purpose. The a 15-year-old private educational non- graphics, and different operating systems students also participate in special cul­ profit organization, uses experiential such as Windows 95. “We try hard to tie tural enrichment activities in and out- education—learning by doing—to help all of the classroom and computer work side the community. The experiment adjudicated youth in Maryland find a to the vocational piece,” says Dillo. “In

82 Appendix HOPE VI: Community Building Makes a Difference

the chair-building module, for example, follow graduates for 3 years, contacting cope with very little support from the students themselves decided to use them at least once a month to gather the community. the computers to create marketing flyers. information about their current situation, Childcare, early education resources, They used their math to figure out housing, and employment. Staff check and health resources have been scarce. how much to sell each chair for and state administrative data to keep track Minorities and poor people suffer dis­ to calculate the profit.” of re-arrests or probation violations. proportionately from such chronic Each session serves approximately “One of the things we’d like to do mor e health problems as hypertension and 20 students. Every 8 weeks a group with is aftercare,” says Dillo. “When diabetes and are more subject to adverse graduates and a new group enters. A juveniles turn 18, they are no longer eli­ events such as stroke. Yet, these condi­ ratio of one staff member for every five gible to receive services. So we need to tions are controllable through health students allows for individual attention. find other ways, like having a staf f mem­ education and the modification of per­ ber call them every day, to check in with sonal habits. Young women of the inner “Our main focus is education: getting a them and make sure they are still on the city are less apt to have adequate pr ena­ GED or a high school diploma,” says right track. Down the road we’d like to tal care, resulting in a higher risk of Dillo. “We are currently working with have a transitional facility where our infant mortality, chronic childhood the Maryland Department of Education graduates could stay for 6 months and illness, and retardation. Poverty also to enable participants to get academic learn other life skills.” breeds substance abuse and addiction, credit for the time they spend her e. which attack the natural sources of What we’d prefer is that they return to strength of a family. Poor families are school, but after spending so much time Meeting the Needs vulnerable to crises because they possess away, they tend to be so far behind they of Families fewer resources to cushion them from an just drop out. And once they get a GED, unexpected job loss or other reversals. they can no longer access school-based “Families are an important natural funds for counseling.” resource,” says Carol Shapiro, director Meanwhile, the bureaucratic fragmenta­ of La Bodega de la Familia, a New York tion of health and social ser vices pro- The typical participant is a 17- to 18- addiction recovery program. “Families need grams, and their orientation toward an year-old male. No young women have care and nurturing. So we spend a third of individual’s deficits, have kept them been referred to the program thus far. our time with the user, a third with other from dealing with the family as a whole, As soon as the Maryland Department of family members, and a third with the family and consequently from developing Juvenile Justice refers a youth to the as a unit.” an approach that builds on family program, Fresh Start staff do an initial strengths and assets and aims to screening for serious violent offenders Although the family is the basic unit maximize self-sufficiency. and sex offenders. Two rounds of inter- and key mechanism of the community, views follow and staff meets with the it still requires the support of the larger Three guiding principles have emerged student’s parents or guardians and community. When communities fail to that seem to be helpful in guiding the juvenile counselor. support families, families have trouble development of family-oriented services: fulfilling their basic roles of protecting, The Maryland Youth Residence Center (1) A good program should build the nurturing, and passing on values and has a Fresh Start dorm, and staff escort family’s capacity to successfully behavioral standards to its children. these participants to the learning facility carry out its key functions of every day. Other participants live in In recent years, this fundamental truth material support, care and nurturing, group homes. Youth who require coun­ has become clearer than ever. The com­ and the education of its members. seling receive it either at the group munity and the family are inextricably (2) Services should be easy to use and home or from Fresh Start counselors. intertwined: what hurts one hurts the flexible, so that they fit family needs Fresh Start has also built relationships other, what strengthens one strengthens instead of the reverse. with several employers and unions the other. The changing structure of the (some of which have been formalized family brought about by a combination (3) Programs should be designed to with contracts). of social and economic forces has made support the goals established by the it increasingly difficult to care for families themselves. For the past 5 years, Fresh Start has children. Economically stressed inner- tracked its graduates. Program staff city families in particular have had to

Appendix 83 HOPE VI: Community Building Makes a Difference

Some of the kinds of activities in this ■ Facilities for counseling and Working with the Housing Authority of area that should be encouraged are mentoring on a range of Baltimore City, the medical center has those that: family-related issues. opened three satellite community and family health centers in Baltimore neigh­ ■ Enhance basic family and ■ Communal associations such as borhoods. One is located across the parenting skills. churches or mosques, block clubs, street from the HOPE VI community parent groups, and play groups that ■ Address the special health needs Pleasant View Gardens, in a facility pro­ are involved in and support family of inner-city and minority families. vided by the housing authority. A second, activities. ■ Educate families in the maintenance located at the City Springs Elementar y ■ Recreational and employment of good health and nutrition. School, serves students and their fami­ programs for teenagers. lies as well as two nearby HOPE VI ■ Keep families intact through crises. ■ Neighborhood celebrations and communities—Lexington Terrace and ■ Strengthen family-to-family festivals that build consciousness Flag House Courts. The medical center connections. of the history, traditions, and hopes recently opened a third center, La Familia Health Center, in the Linwood ■ of the community Build attachment to, and increase area—the first in the city to specifically the commitment of, families to the Some examples of best practices in this serve a Latino community. community—where necessary, program area follow. addressing the language and cultur­ Each of the centers provides the array of al barriers that obscure a common services necessary for families to get stake in the community. healthy and stay healthy—including ”Recognizing that adult and pediatric primary health serv­ The kinds of assets and resources that many aspects of family ices, women’s health services, eye care, could help foster such activities would dental care, mental health and substance include: life affect health, abuse treatment and counseling, HIV ■ Centralized facilities (community the medical center case management and support, pharma­ centers, libraries, or community cy services, and social services. Other schools) that could house support also provides activities include community outreach network services and provide a financial counseling, and educational activities such as health communal place for family-oriented fairs; screenings for diabetes, breast can­ programs and activities. an onsite WIC office, cer, high blood pressure, and HIV; and cholesterol and pregnancy tests. ■ Childcare facilities (including computer training, Recognizing that many aspects of family infants, toddlers, and afterschool GED preparation, care for older children). life affect health, the medical center also provides financial counseling, an onsite ■ and parenting classes.“ Educational facilities that serve WIC office, computer training, GED diverse needs. preparation, and parenting classes. The ■ center is also working with the commu­ Healthcare professionals or agencies Health Clinic Brings Range willing to cooperate in developing nity on clothing distribution, a food an onsite facility or otherwise creat­ of Family Services to bank, and back-to-school health fairs. ing easier access to healthcare and Baltimore’s Neighborhoods It will soon begin a new 3-month job preventive health education for training program at its hospital in near- The Greater Baltimore Medical Center residents . by Towson, Maryland, and has hired a has been helping Baltimore families stay ■ job-readiness specialist to assist with Safe houses and emergency shelters healthy for 100 years. Now, at the start job searches, résumé preparation, for women and children who are of another century, this venerable insti­ and interviewing. victims of abuse. tution has begun to rethink its notions of health and accessibility.

84 Appendix HOPE VI: Community Building Makes a Difference

Primary Healthcare Three Hillside residents work for Services include 24-hour crisis interven­ in the Community: Mahoney Health Services as clinical tion, diagnostic evaluations, short-term assistants or outreach workers. Two mental health services, pharmacothera­ Milwaukee’s Hillside work at the Hillside clinic and one is py, group counseling, and family support Family Health Center assigned to the Mary Mahoney clinic groups. More than 500 families are at Metcalf Park, located about 12 served by citizenship classes, parent The Hillside Family Health Center sup- miles away. support groups, job-training preparation, plies free primary healthcare for resi­ and community improvement programs. dents of the revitalized Hillside Terrace In 1998 the organization reached more HOPE VI community and its surround­ Oakland Agency than 834 families with an awareness ing Milwaukee neighborhood. The Coordinates Supportive campaign dealing with the new self- nurse-managed clinic in the Hillside sufficiency rules under welfare reform Family Resource Center provides pri­ Services for Asian Families (launched in cooperation with four other mary care, case management, prenatal “Asians tend not to ‘self-report,’ but Asian agencies in Oakland). The agency care, asthma and dental screening and instead keep family problems within the also provides case management and sup- referrals, immunizations, health educa­ family,” says Alan Shinn of Oakland’s port services, ESL classes, citizenship tion, and home visits. Services are avail- Asian Community Mental Health classes, job training, and community able Monday through Thursday from Services. Yet Asian families experience a projects. It offers the following programs: 9 a.m. to 7 p.m. and on Fridays fr om range of problems—racial tensions, sub- 9 a.m. to 5 p.m. stance abuse, or health or family pr ob­ ■ Strengthening Asian Youth and Family is an afterschool program The center taps the services of registered lems. And, for some refugees, traumatic for children in grades three through nurses, nurse practitioners, physicians, memories of violence and death may five at Garfield Year-Round medical assistants, and outreach work­ complicate adjustment to a new life. Elementary School. In the past ers. Medical staff saw and treated 929 Further complicating matters, the East 2 years, more than 200 children visitors at the Hillside clinic in 1998— Bay Asian community includes many have participated in recreational and referring three times that many to other, different nationalities—some 14 lan­ cultural activities designed to build more specialized medical facilities for guages and dialects. It has taken years self-esteem and cultural pride. They needed treatment. for the organization to get families to also receive tutoring and mentoring The center is operated by the Black identify with the generic term Asian, from high school interns and go on Health Coalition of Wisconsin, Inc., and says Shinn. It is a continual challenge, field trips. contracted through Mary Mahoney he adds, to find translators and English- ■ Cambodian American Youth Achieving Health Services. Incorporated in 1988, proficient resident leaders who can Knowledge brings Cambodian youth the Black Health Coalition has long been link up these different ethnic groups from Havens Court Middle School in the forefront of health issues that and connect Asians with the rest of together twice a week for leadership affect African Americans and other the community. building and rap sessions. underserved groups in Wisconsin. The The 24-year-old comprehensive health, group fights for availability of care and advocacy, and social service center has ■ Project Emerge (which just recently the development of a coordinated sys­ become a key partner in efforts to meet ended) formed a soccer team of tem of care. Its activities include advoca­ the needs of Asian families living in the youth from the Lockwood Gardens cy, research, technical assistance, and HOPE VI communities of Lockwood and Coliseum Gardens public education and training. The coalition is Gardens and Coliseum Gardens. It also housing communities with supple- made up of healthcare professionals, serves as a model of comprehensive mental programs in teamwork, social service agencies, professional service delivery. The organization has sportsmanship, and substance organizations, and grassroots groups. multilingual, multicultural staff who abuse prevention. The coalition began with 12 organiza­ provide mental health services for ■ Asian Sisters in Action facilitates sub- tions but has since grown to 26 organi­ children, adolescents, adults, families, stance abuse prevention, empower­ zations and 19 individual members. and seniors. ment, and communication skills for girls ages 11 to 15. Asian

Appendix 85 HOPE VI: Community Building Makes a Difference

Community Mental Health Services Hogar CREA Drug mothers improve their parenting skills. acts as lead agency for a coalition Treatment Program At group meetings, mothers share expe­ of community agencies. Program riences, ask questions, and support one counseling centers have opened There are an estimated 9,000 intra­ another. Women in treatment participate in Oakland and Union City. venous drug users in the Hartford, in community workshops where they Connecticut, area. But until recently share what they have learned and ■ Asian Youth Promoting Advocacy and there were only 103 subsidized beds encourage others to seek treatment. Leadership trains interns to be peer- and no residential treatment facilities group leaders and community advo­ Through linkages with the housing for women. cates who, in turn, encourage a authority’s family investment centers, larger number of teens to become In 1997 the Hartford Housing Authority local schools, the county department of involved in community issues. The joined forces with Hogar CREA, a pri­ social services, and local health clinics, agency acts as lead for seven com­ vate nonprofit drug treatment agency, to CREA reaches out to other chemically munity organizations that sponsor open a 12-unit residential drug treat­ dependent women. The facility will five youth leadership programs. ment center for women in the HOPE VI double its size in 2000. community of Harriet Beecher Stowe ■ Asian Communities Empowering Teens Village. (CREA stands for Center for the addresses issues of self-esteem, Reeducation of Ex-Addicts; Hogar is a Cleveland’s Miracle Village identity, and generational differences Spanish word for home.) Keeps Drug-Devastated for girls in their teen years, and holds workshops for families and Now, 20 women living in public housing Families Together youth service providers. can undergo substance abuse recovery Cleveland’s Miracle Village is a model treatment in the supportive context of ■ Caring Asian Parent Alliance, under chemical dependency treatment program their own community. A coordinated contract with the Alameda County for women and their children. Begun in 2-year program of supportive services Social Services Department, works 1996 in the HOPE VI community of addresses the needs of both parents and to prevent child abuse in Cam­ Outhwaite Estates, it was the first pr o- children; the goal is to strengthen fami­ bodian families by teaching parents gram of its kind to link substance abuse lies and keep them together. better ways to communicate while treatment, healthcare, housing, an becoming more involved in their The intensive program takes a compre­ employment program, and family- children’s education. hensive and integrated approach to the oriented supportive services in a com­ family and its needs. In all, r esidents munity context. This innovative partner- ■ Community Integration Services for undergo 14 different therapies designed ship of MetroHealth Medical Center and Asians is an independent living pro- to reeducate them about substance the Cuyahoga Metropolitan Housing gram that offers developmentally abuse, self-esteem, and responsible Authority keeps mothers and children disabled clients one-on-one training behavior. Through individual and group together while providing long-term, to help them become or remain counseling, classes, and activities, partic­ intensive treatment and support. self-sufficient. The case-management ipants address matters such as the stress­ team also provides coordination and The approach is to first deal with the es and expectations of the workplace, referral services and support groups addiction and then, over time and with public speaking, civility, conflict resolu­ for parents. the help of key community players, to tion, family, and spiritual centering. provide community support and work In addition, the agency’s mental health The Families United and Nurture Project to eliminate barriers to self-sufficiency consultants assist Head Start staff in provides family therapy for mothers and and healthy functioning. The program assessing developmental, behavioral, and children together with developmentally consists of pretreatment; 3 months of language problems in young children. appropriate recreation and parenting intensive residential treatment in Miracle Services include translation, onsite test­ education. By observing parent-child Village, a 30-unit development separated ing, facilitating parent-group meetings, interactions, educators can assess chil­ from other public housing residents; and classroom observation, home visits, and dren’s development, making referrals or up to 21 months of aftercare and sup­ counseling for special-needs students. suggestions where appropriate, and help portive services in Recovery Village,

86 Appendix HOPE VI: Community Building Makes a Difference another clustered group of apartments in Drug Treatment Is a particular HOPE VI community, La Outhwaite. Mothers receive ongoing Family Affair: New York’s Bodega’s comprehensive, community- chemical dependency treatment, family based, family-focused approach is the medical and dental services, wellness La Bodega de la Familia sort of approach encouraged by the education, fitness classes, and parenting Family interventions can help drug users HOPE VI program. classes. They also may work on a GED, succeed in outpatient treatment, reduce La Bodega’s focus on the family and vocational training, and job placement; drug-related domestic violence, and neighborhood—instead of on the drug transportation is provided. Children restore neighborhood safety. That is the user—distinguishes it from traditional attend afterschool programs. premise of La Bodega de la Familia addiction recovery programs. “We are A large factor in the recovery of these (“The Family Store”), a project of the trying to change the conversation about women, say participants, is the mutual VERA Institute of Justice. Launched in addiction,” explains Shapiro. “We want support of the community in which they October 1996, this imaginative program to move addiction from a justice issue to reside throughout treatment. The focus operates from a renovated grocery store a public health issue. Families are always is not merely on helping one person that was the scene of a tragic confr onta­ the first to see the symptoms.” recover from addiction, but also on tion between police and local drug deal­ La Bodega provides case management strengthening the prospects of the entire ers in 1995. for families of addicts involved in the family. The program views the family as criminal justice system, 24-hour support a dynamic support system in which La Bodega’s focus on for families and police officers dealing everyone gives and from which everyone with drug-related emergencies, and draws strength. the family and walk-in support and prevention services In the first year (1996–97): neighborhood— for all neighborhood residents. ■ One hundred and ninety-three instead of on the drug “Families are an important natural women responsible for 461 children resource,” Shapiro points out. “They went through the program. user—distinguishes need care and nurturing. So we spend a third of our time with the user, a third ■ Sixty-five percent of program it from traditional with other family members, and a thir d participants remained drug- addiction recovery with the whole family unit.” Clinical and alcohol-free. programs. staff (social workers and family coun­ ■ Twenty-five women gained selors) are responsible for case manage­ employment. ment. Field staff, most of whom have a ■ Twelve women enrolled in college La Bodega is located in a densely populat­ background in criminal justice or law or received degrees. ed 54-square-block area called Loisaida enforcement, act as liaison between fam­ on Manhattan’s Lower East Side—a ilies and law enforcement agencies and ■ Sixty-five children were reunited community sometimes called Alphabet work with the parole program to prepare with their mothers. City because of its many social ser vice families to cope with released prisoners. ■ School-age children’s grades providers. Loisaida is a low-income area La Bodega also works with the lar ger improved significantly. with high rates of substance abuse, HIV community. It operates support groups infection, and violent death. Residents for young mothers, victims of family vio­ ■ Twenty-one babies were born are about 80 percent Latino and 15 per- lence, friends and families of substance drug-free during the program or cent African American. La Bodega’s staff abuse offenders, and people returning followup period. is bilingual and its programs are culturally from prison. La Bodega staff spend time More than 250 women have successfully sensitive. More than 80 percent of the with local youth on murals, back-to- completed the program. Because of its community lives in public housing. school nights, poetry and photography size and comprehensiveness, Miracle Carol Shapiro, director of La Bodega, workshops, and other positive activities. Village has become a national model for says that she is “riveted by the intersec­ La Bodega also coordinates other residential drug treatment for women tion of our work and public housing.” community and government services, and their families. Although not specifically linked to a handling referrals from child welfare,

Appendix 87 HOPE VI: Community Building Makes a Difference probation, parole, the New York City partnership with the Tiger Woods Teaching Children Housing Authority, and other city agen­ Foundation, the National Minority Golf Community: Seattle’s cies. The agency has had some success Foundation, the National Golf Architects in building better working relationships Association, the National Course Inside-Out Arts Program between the community and law Builders Association, and the National Mask making. Clay figure animation. enforcement agencies. “We are sort of Golf Writers Association. Jewelry and adornment. Boys and girls like the glue because we’re neutral,” says First Tee has now embarked on partner- costumed as silver stars, twinkling before Shapiro. “Some drug treatment is coer­ ships with several housing authorities an audience of parents in Tar Beach, a cive, we’re not. We try to understand all around the country and has been written play by award-winning children’s author of the players.” into HOPE VI proposals in Columbia, Faith Ringold. It would create smiles La Bodega de la Familia is curr ently South Carolina; High Point, North anywhere. But at NewHolly, a revitalized funded by the U.S. Bureau of Justice Carolina; and Danville, Virginia. Staff at HOPE VI community in Seattle, the uni­ Assistance; the New York Department First Tee have been working with HUD versal language of arts expression serves of Mental Health, Mental Retardation, staff to find additional opportunities a particularly important role since the and Alcoholism Services; the New York for involvement. large contingent of immigrant children City Department of Probation; the New who live there may speak any of a York City Council; and the New York dozen languages. State Division of Probation and The program teaches “The Inside-Out Arts Program was my Correction Alternatives. baby,” says Kimberly Keith, curator of golf skills and values outreach services. Keith has been with Low-Income Youth Link associated with the game The Children’s Museum of Seattle for more than 6 years, starting as an out- Up With First Tee as part of a larger life reach coordinator. “First I went out The emergence of Tiger Woods as a skills curriculum. to Head Start programs, low-income world-class contender on the profession­ housing, homeless shelters—taking al golf circuit has done more than glue a our multicultural arts program with few million more Americans to their tel­ The organization has set the ambitious me.” The program was initially funded evision sets on Sunday afternoons. It has goal of initiating the development of 100 in 1995 through a $65,000 drug stimulated a tremendous interest in golf facilities nationwide by 2000, with the elimination grant. as a sport among poor, minority, and government contributing the land and About 20 to 30 young people, ages 5 to inner-city children, many of whom have the private sector operating the golf 14, participate during the school year had little opportunity to try their hand education program. and up to 45 in the summer. Summer at the game. A recent survey of young Each local First Tee chapter is a activities include field trips to a cultural people’s recreation by the Boys & Girls 501(c)(3) organization that works with institution such as a museum, followed Clubs of America found that young local volunteers and priorities, but the by an afternoon visit to a park or swim­ people everywhere want to learn how core model is the same. The pr ogram ming pool. These expeditions help to to play golf. teaches golf skills and values associated mitigate the cultural and physical isola­ First Tee, a national nonprofit organiza­ with the game as part of a lar ger life tion of public housing children. “We are tion founded in 1998, has the mission skills curriculum. Donated equipment making them citizens of the city and the of making golf affordable to low-income provides the young participants with world,” says Keith. children and of promoting the values of everything—clubs, balls, and shoes— Project staff consists of three full-time golf, such as fairness, good sportsman- that they need for the game. The Ar nold staff and four part-time work-study ship, manners, and learning intense con­ Palmer Foundation, for example, recent­ students. Arts program staff meet regu­ centration. It works to bring golf and ly donated 3,000 youth-size golf clubs. larly with other NewHolly service other recreational opportunities to Through that national organization, providers to coordinate services. The underrepresented rural and urban com­ participating youth have access to jobs children’s arts program had long operat­ munities. The organization operates in and scholarships. ed without its own dedicated space— setting up shop in a community

88 Appendix HOPE VI: Community Building Makes a Difference

building, nearby public housing, a set­ facility was transformed into a “one-stop joint programming by the mall’s tenant tlement house, and a small suite in one shop” for social and community ser vices: organizations. A brochure highlights the of the remodeled cottages that made up the Carl B. Stokes Social Ser vice Mall. services of each agency and the partners the setting of NewHolly’s Campus of are in the process of developing an The Stokes Mall, which officially opened Learners program. By 2000, however, instrument to track interagency referrals. in June 1996 under a HUD HOPE VI as the housing authority completes grant, houses 25 different social and NewHolly’s Learning Center and Family community service agencies, including Resource Center, the Inside-Out Arts The Meaningful the CMHA Health Clinic (a partnership Program will find a permanent home Engagement of Residents among the housing authority, Metro- alongside a public library branch, a Health Medical Center, and several in the Life and Prospects technology lab, a daycare center, a youth other agencies), the Cleveland Board of of the Community tutoring program, and other services. Education Central Resources Center, “When you’re paying the electric bill,” says “The new building gives the idea of part­ and the Marotta Montessori preschool. one former public housing resident, “you nership new depth and meaning,” says Another tenant is Computer Assisted have to start worrying about turning off the Keith. “We will have to be especially Learning Labs, created by the Urban TV when you go to bed, or fixing that drip- proactive now to include all of the stake- League of Greater Cleveland in collabo­ ping faucet before it leaves a stain—things holders at NewHolly. What does the new ration with the housing authority. The you never had to think about before.” community want? How can we continue lab provides test preparation, software to offer useful programs?” The Child training, and opportunities for personal An important factor in making HOPE VI Welfare League, another HOPE VI part­ use of educational software. Approx­ programs work has been the inclusion ner agency, leads retreats and visioning imately 150 to 200 residents use the of residents in planning and governance. exercises to help museum staff address lab weekly. People tend to take a greater interest in these questions. With the help of the matters in which they have a stake and The Urban League’s job search program, arts program and in partnership with the a say. Giving public housing residents a which has about 50 resident clients per Bon Marche department store, the chil­ chance to invest something of them­ week, enables residents to interview dren of NewHolly will create a decora­ selves—their time, their energy, their with employers onsite. Job developers tive mural, which will be exhibited at ideas—in activities that affect their own work with corporations to provide job the store and then installed at the new future and that of their community has slots. Resident involvement is ensured learning resource complex at NewHolly. been critical to program success. In pub­ because the Progressive Action Council lic housing communities where residents Many of the children who started with (the public housing residents’ organiza­ are progressing toward self-sufficiency, the program in 1995 still attend. In par­ tion), and the Resident Employment one will find opportunities for resi­ ticular, two young men now work week- Opportunities Agency are located in dents to take self-responsibility, both for ends at The Children’s Museum and the mall. their family and for the future of the will soon be leading hands-on activities The services in the mall—which include whole community. there. “These kids are our family,” preventive care, health education, and says Keith. One example is the dramatic reduction dental care—are open to residents of the in crime observed in formerly crime- surrounding neighborhood as well. The ridden HOPE VI developments. Where mall faces outward to encourage neigh­ All Under One Roof: crime has fallen, authorities confirm, it borhood use, which helps to break Cleveland’s Carl B. Stokes is because residents have been engaged down the traditional isolation of public in its suppression and supported in their Social Service Mall housing residents. efforts to set behavioral limits. The King-Kennedy South highrise facili­ In the planning stages, the housing It is a principle of community building ty was one of the most dilapidated, authority marketed the mall to prospec­ that one function of healthy communities obsolete properties of the Cuyahoga tive social service agencies by waiving is setting standards for acceptable behav­ Metropolitan Housing Authority (CMHA). the first year’s rent for charter tenants. ior. The inability to curb crime, drugs, Renovation or demolition would have Offices quickly filled. Monthly meetings and gangs in their communities was a been enormously expensive. Instead, the are held to facilitate collaboration and

Appendix 89 HOPE VI: Community Building Makes a Difference

source of great anxiety and frustration community building is to ensure struc­ toring and evaluating each phase; for many public housing residents in the tures that provide choices that enable and implementing the new past. Such activities also hurt residents people to take advantage of the full operation. by discouraging the neighborhood range of life’s opportunities. The choice ■ Keep the entire resident popula­ investment that might produce jobs, should be theirs. tion—especially those temporarily new housing, and amenities. Resident engagement activities that relocated elsewhere—informed and Increasing security measures and imple­ should be encouraged are those that: connected to the community and menting the architectural principles of opportunities being developed. ■ Create opportunities for residents defensible space can accomplish only to use their skills, knowledge, or ■ Build bridges to the larger commu­ so much. Residents must themselves experience in ways that benefit the nity and welcome the input of become agents of change by participat­ whole community. stakeholders and residents from the ing in the drawing up of tougher admis­ surrounding neighborhood. sion standards and supporting One ■ Provide resident advisory councils Strike and You’re Out eviction policies. with the knowledge and under- ■ Allow qualified residents, armed It is this kind of engagement, coupled standing of the design and with the knowledge they need to with the vigorous enforcement of these development process they need succeed, to explore other lifestyle standards by the housing authority, to participate meaningfully at options such as homeownership. every stage. that has clearly made the difference in The kinds of assets and resources that developments such as Oakland’s once- ■ Enhance the capacity of neighbor- could help foster such activities would notorious Lockwood Gardens. hood leaders to bring about com­ include: munity development through their Creating opportunities for homeowner- ■ A talent or skills bank. ship is another way to give r esidents a own actions and through encourag­ greater stake in their community, even as ing others to get involved. ■ Opportunities for utilizing such skills or experience. they move toward greater independence. ■ Build a sense of community among The homeownership process tends to residents and a sense of each indi­ ■ Business professionals willing to reinforce responsible habits by linking vidual’s and family’s stake in what serve as consultants to the resident eligibility to such positive behavior as happens to the community. council in their areas of expertise. holding a job and making rent and utili­ ■ ty payments on time. Homeownership ■ Enable residents, as a community, to Local universities, community col­ training programs also provide training develop a consensus around shared leges, or nonprofit organizations in skills such as money management, core values and work with the willing to provide technical assis­ performing routine maintenance, and housing authority and other stake- tance or training classes for resident planning for contingencies. And holders to establish standards for leaders (preferably onsite). owner-residents tend to take better what will be acceptable and unac­ ■ Community policing. care of property. ceptable in such matters as the maintenance of private property, ■ Resident training and technical Residents and their organizations also disposal of waste, use of drugs or assistance programs such as those have a role to play in relocation issues. alcohol, and behavior in common offered by HUD’s HOPE VI office. Many public housing residents prefer areas. ■ to stay in their old neighborhoods, A community-building facilitator where they have friends and family and ■ Allow residents to participate, from based at the public housing site. a new stake in the future. Reflecting this the beginning, in the process of ■ A convenient location, preferably desire, resident councils have often been assessing needs; identifying assets to onsite, where training and support­ involved in drawing up and monitoring build on and resources to tap; set­ ive services can be provided. ting community priorities (for relocation and right-to-return policies. ■ Other residents, when faced with reloca­ example, with respect to the reloca­ Opportunities for homeownership tion decisions, have opted to move on— tion and return of affected families); and homeownership-readiness perhaps as homeowners—to another life planning and strategizing for differ­ education. in another neighborhood. The goal of ent aspects of development; moni­

90 Appendix HOPE VI: Community Building Makes a Difference

■ Neighborhood stakeholders willing Residents who elect to accept Section 8 change their minds when they meet the to work with public housing resi­ subsidies for scattered-site rentals begin family in question or when a case man­ dents on neighborhood betterment with a one-on-one introductory inter- ager can address their specific concerns. activities. view. The introduction talks about The case manager helps the family with opportunity areas in Baltimore and the ■ Local policies that further the the move and the process of settling in. surrounding counties and then explains transformation of public housing Families who move to nonimpacted the advantages of each. A case manager into a mechanism for helping resi­ areas, as defined by the county, receive a visits each family to become aware of all dents move toward sustainable dollar-for-dollar match on their security members’ concerns. The case manager self-sufficiency. deposits. After the move, the case man­ also checks to see if the family has suf fi­ ager makes followup calls to the families Some examples of best practices in this cient housekeeping skills to blend into a and their landlords, then contacts the program area follow. new community. Families that need help families intermittently over the next year are referred to an appropriate resource. to help them resolve any problems that In Baltimore, HOPE VI- may have arisen. “Followup is crucial,” says Crystal. Affected Residents Find The case manager’s Not Simply Relocation She is proud of the program’s accom­ job is not to find but Mobility plishments: more than 68 percent of housing for families, the families served have moved to low- “Housing authorities have to decide,” poverty areas. She cautions, however, says Ruth Crystal of the Baltimore but to provide families that such a program is labor-intensive, Regional Housing Mobility Program, with information and referring to the Gautreaux mobility proj­ “whether what they’re doing is reloca­ ect in Chicago. “People throw out a cost tion assistance or mobility counseling. assistance to use to find of $1,500 per family based on Gautr eaux, Relocation has to do with getting you their own housing. but that did not involve individual case out of a specific public housing pr oject. management,” she warns. “The real cost Mobility is about having choices about of successfully relocating a family is where you want to live and making the closer to $4,000.” right one for you.” The case manager talks with family members to determine what is important The mobility program, which Crystal to them in a community, such as a good Kansas City Resident Task directs, uses personalized case manage­ school system, proximity to friends or Force Plays Many Roles in ment with a focus on the family. To date, relatives, or access to public transporta­ more than 145 families affected by tion. The agency provides information HOPE VI Revitalization HOPE VI demolition and construction on demographics, schools, transporta­ Residents of Guinotte Manor were have been relocated successfully. More tion facilities, and other amenities. brought into the HOPE VI process early, than two-thirds of these residents have When a family has narrowed its choices, with their input incorporated into the chosen to relocate to areas not affected the case manager may drive the mem­ application submitted by the Housing by HOPE VI. By recruiting new land- bers around the chosen community or Authority of Kansas City. A task force, lords into the program, case managers introduce them to other Section 8 made up of several members of the are increasing the availability of afford- families already living there. elected 15-member Guinotte Manor able housing—and thus the choices The case manager’s job is not to find Tenants Association and chosen by the afforded to families that opt for a residents at large, consulted with the Section 8 voucher. housing for families, but to provide fam­ ilies with information and assistance to housing authority on every aspect and The program provides mobility counsel­ use to find their own housing. When phase of the HOPE VI revitalization ing and search assistance to Section 8 appropriate, a case manager may inter­ process. Task force members were recipients in Baltimore and five nearby vene with a landlord on behalf of a fami­ responsible for keeping Guinotte counties. It is one of 16 operations to ly. Landlords who balk at participating Manor residents abreast of HOPE VI receive funding from HUD’s Regional in the Section 8 program sometimes developments. Each member was Opportunity Counseling Program. responsible for keeping a particular

Appendix 91 HOPE VI: Community Building Makes a Difference

group of families informed and bringing Manor residents. Resident representa­ including welfare-to-work initiatives, to their ideas and concerns back to the full tives explain policies and procedures to be carried out by the state of Missouri in task force. the other residents and see to it that this inner-city neighborhood near down- housing authority and staff address their To assure meaningful participation, town. The second was supervision of the concerns. Staff members report that all members of the tenant association transformation of Jefferson Elementary more involved residents set higher received training in community organiz­ School into a community school. expectations for themselves, take better ing, parliamentary procedure, goal set­ The steering committee—composed of care of property, and exhibit a greater ting, conflict resolution, sensitivity public housing residents and representa­ interest in community affairs. training, and how to run an ef fective tives from neighborhood organizations, meeting. Five or six attended each the housing authority, and other stake­ HOPE VI conference. holders—is called COVAM (see page This council During the planning process, staff met 79). Although none of these develop­ twice weekly with the residents’ associa­ represents the interests ments are HOPE VI communities, COVAM illustrates the kind of broad- tion task force to apprise them of what of neighborhood was happening and to invite their input. based community initiative that HOPE The two groups continue to meet on residents and other VI encourages. a weekly basis, with HOPE VI staf f stakeholders, such This council represents the interests of serving as technical advisors to the neighborhood residents and other stake- residents’ association. as businesses, holders, such as businesses, organiza­ Every week the HOPE VI staff issues a organizations, and tions, and local governments. COVAM also functions as the oversight board for written report alerting residents about all local governments. pending activities and approaching deci­ the Jefferson School, which was placed sions. The tenants association dissemi­ under community control through an agreement negotiated with the St. Louis nates this information throughout the Residents Help Build housing development and brings back School Board. Its mission includes: any questions or concerns. A communi­ Community Assets ■ Fighting for fair housing. ty meeting of all residents is held four in St. Louis ■ Increasing affordable housing and times a year. An innovative community task force homeownership opportunities. With the help of technical assistance was developed in St. Louis to support ■ Reducing homelessness. consultants, the task force members the revitalization of the George L. have become, in effect, resident experts Vaughn Residences at Murphy Park— ■ Promoting jobs and economic on the various issues affecting them- an ambitious mixed-finance, mixed- opportunity. selves and their fellow residents. They income development being built with ■ Empowering people and have participated in the selection of $22 million in public housing develop­ communities. service providers, HOPE VI staff, archi­ ment grant funds from HUD. The proj­ tects, and contractors. The task force ect, when complete, will include 222 ■ Restoring public trust. members have become the watchdogs public housing units within a 400-unit Building on COVAM’s success, a similar and whistleblowers for the housing development managed and marketed task force has now emerged in support authority, alerting it to any problems by a private management company, of the redevelopment of the Darst- with compliance or implementation McCormack Baron & Associates. Webbe public housing development a reported by residents. A community-based neighborhood steer­ mile or so away. Darst-Webbe is being With the residents’ association now serv­ ing committee was formed to coordinate revitalized through a $47.7 million ing as an advisory board to the housing two major undertakings seen as having HOPE VI grant. The Darst-Webbe authority on a wide variety of matters, a tremendous value for the community. Community Task Force—with represen­ new level of trust has grown up between The first was a comprehensive set of tatives of public housing residents, the housing authority staff and Guinotte neighborhood revitalization activities, housing authority, the city, neighborhood

92 Appendix HOPE VI: Community Building Makes a Difference

organizations, and other stakeholders— The community foundation will back itself and for its individual members, is credited with saving the HOPE VI local investment projects felt to be in the and developed a strategy for reaching project there, which was in default and community’s long-term interest. An those goals. It means everybody under- in danger of being revoked. Darst- entrepreneur who does not meet tradi­ stands their responsibility to one another Webbe will be a mixed-finance, mixed- tional qualifications for a microenter­ and for the success of the whole. In income community with a revitalized prise loan from the Santa Rosa-based some places it takes the form of a con- neighborhood school structured on the Tucson El Pueblo Credit Union may be tract signed by family members and the Jefferson School model. referred to the fund. If the new enter­ housing authority. prise is felt to address a priority identi­ The family agrees to stay focused on its fied by residents in connection with goals and to do whatever is r equired to Neighborhood Equity HOPE VI revitalization, the fund might continue to make progress. For its part, Fund Will Support guarantee the loan; and the Small Business the housing authority agrees to provide Center at Pima Community College might Resident Priorities access to opportunity and all the support­ help develop the business plan. in Tucson ive services the family will need to suc­ The fund will provide ongoing resources ceed. Such programs are most effective Strategizing and acting in concert to for resident priorities after the HOPE VI when carefully coordinated and commu­ improve the capacity of the community project is completed. It could support nity-based—so that the successes of one to generate jobs and other opportuni­ business loans, social and recreational family may encourage others and help ties—and to support the values of programs, beautification projects, or establish a supportive culture of work. its residents—is a critical aspect of individual development accounts for community building. A case in point is the One-Stop Shop neighborhood residents. of the Chester Housing Authority (CHA) In Tucson, the residents of the Greater The community foundation will adminis­ in Chester, Pennsylvania. Housed in Santa Rosa neighborhood are working ter the fund and act as fiscal agent. donated space in the Crozer-Keystone with the Community Foundation for Foundation staff will underwrite all Health Center, it acts as a focal point Southern Arizona, the Enterprise requests for equity investments, cash for the housing authority’s Family Self- Foundation, and the city of Tucson to disbursements, and loans. To date, the Sufficiency (FSS) program. The center is develop the Neighborhood Equity Fund. city of Tucson has contributed $225,000. located near the Ruthel Bennett, William The fund will function like a small com­ HOPE VI contributed $225,000, the Penn, McCafferty, and Lamokin Village munity foundation for the Santa Rosa Fannie Mae Foundation $150,000, and developments; McCafferty and Lamokin neighborhood and will be housed within the Enterprise Foundation $100,000. Village are HOPE VI sites. A group of the community foundation. The goal is to raise $3 million. The public agencies and nonprofit organiza­ Santa Rosa is a neighborhood in the Enterprise Foundation and Fannie Mae tions provide a comprehensive array of process of gentrification that contains an are assisting Tucson in its fund-raising services for residents out of the center. eclectic mix of upscale offices, historic campaigns at both the local and national The FSS program is results-oriented. adobe homes, middle- and lower-income levels. Participants are placed in competitive families, and the Connie Chambers temporary employment with local com­ HOPE VI development. By focusing resi­ panies. After gaining some experience dents and other stakeholders on com­ Everything Aimed Toward and establishing a work record, they mon concerns and their shared stake in Family Goals: Chester may attain full-time permanent employ­ Santa Rosa’s future, says Bob Pollack of Housing Authority’s ment. More than 40 businesses, tempo­ Tucson Community Services, the fund rary agencies, and customer service has helped unify the community. An One-Stop Shop for agencies come onsite to recruit. The advisory board made up of neighbor- Self-Sufficiency housing authority serves as a temporary hood representatives has been meeting Family self-sufficiency means more than placement site and has hired some over the past 6 months to set up the a job for the head of the household. It residents full time. A 5-week property parameters of the fund. means a family has identified goals for maintenance training program for residents is under development.

Appendix 93 HOPE VI: Community Building Makes a Difference

The program is comprehensive and inte­ ■ The Delaware County Community conducted more than 19 ECHO opera­ grated. FSS case managers work closely College offers skills training and tions. More than 30 nonpublic housing with local Department of Public Welfare GED classes. communities have also used the ECHO case managers who are also located strategy; and crime has been reduced by As of April 1999, 200 public housing onsite. One-Stop Shop managers work more than half in some places. and Section 8 participants have signed closely with the Chester Office of FSS contracts. Sixty-five have become The program consists of three parts: pre- Employment and Training and the employed and started escrow accounts— ECHO, the Day of Operations, and post- Chester Job Center. Duplication of savings earmarked for an important ECHO. The pre-ECHO planning phase effort is minimized while the impact family goal such as homeownership involves gathering input from communi­ of resources is maximized. that cannot be touched for any ty leaders and city, state, and federal Supportive services include case man­ other purpose. agencies. On the Day of Operations, agement, skills assessment, job-readiness more than 350 people may be deployed programs, homeownership counseling, in two different staging areas. First, alcohol and drug counseling, education­ “We wanted it to be some 150 housing authority security and al development, and health and wellness more about community police officers, the county sheriff, and programs. Case managers make more state police secure the area. Then teams than 150 contacts with participating and maintenance, to of social workers, security officers, families; a dozen different workshops, clean up not just crime, ECHO inspectors, housing managers, dealing with a variety of issues, ar e held; and maintenance workers go door-to- and more than 20 residents interview but also grime.” door to inspect each unit for r epairs with potential employers onsite each and maintenance needs and to identify month. Many partners operate onsite at families in need of social ser vices. New the One-Stop Shop: Cleaning Up Not Just security measures are instituted in the Crime, But Grime: lobbies and residents are issued photo ■ The Crozer-Keystone Health identification cards. The post-ECHO Center provides mental health Baltimore’s Project ECHO phase involves followup and im­ and substance abuse services. Chief Hezekiah Bunch of the Baltimore plementing plans to sustain these ■ Women’s and Children’s Health Housing Police Force tells it this positive changes. Services, a component of Crozer- way: “When I came here in 1993, ECHO is built on the cooperation of r es­ Keystone, operates a wellness and Commissioner Benson wanted to get ident and community leaders, the hous­ fitness program for CHA residents. control of the neighborhoods. We went to Chicago and stole some of their ideas ing authority, state and federal agencies, ■ The Chester Education Foundation from their Clean Sweeps program. But the Baltimore mayor’s office, and several provides Work First, a training com­ we decided we didn’t want to focus on city agencies. ECHO is not specifically a ponent that leads to short-term job police activities. We wanted it to be HOPE VI program. However, the pro­ placement. more about community and mainte­ gram—with its inclusion of residents, ■ The Delaware County Family nance, to clean up not just crime, but bolstering of community values such as Centers coordinate family education also grime.” keeping a residential area clean and and leisure/recreation activities. crime-free, and coordination of a wide The program that residents and housing range of community partners—is ■ The YWCA provides computer police developed is called Extraordinary the sort of effort encouraged by the classes in the One-Stop Shop’s Comprehensive Housekeeping HOPE VI program. computer lab. Operation (ECHO). ECHO combines The cost of each sweep is appr oximately ■ concentrated law enforcement, social The Chester Community services, repair, and beautification activi­ $200,000. Agencies share the costs of Improvement Project provides ties at a public housing complex. Since the personnel involved. The principal mortgage counseling. it was launched in summer 1993, the expense is materials used for cleanup Housing Authority of Baltimore City has and repair. As part of pre- and post-

94 Appendix HOPE VI: Community Building Makes a Difference

ECHO, housing authority police work and discounts; and housing counseling income buyers. In support of the neigh­ with the team to look for funding to for resident training. It sets up a contin­ borhood’s goal of developing a truly maintain and supplement gains made. uum of homeownership education and mixed-income community, discounts counseling called a circle of services. are offered to market-rate buyers as an Providers include partners from the incentive to purchase homes at NewHolly. Getting Opportunity Fremont Public Housing Association, One of the objectives of the homeowner- Organized: Seattle’s the Holly Park Community Council, ship program is to provide employment Consumer Credit Counseling, the NewHolly Homeownership training and job opportunities for public Washington State Housing Finance Program housing residents. Four multilingual Commission, Fannie Mae, HUD’s translators have been trained as home- A homeownership program is an oppor­ Federal Housing Administration pro- buyer education counselors through tunity for the community as well as for gram, the lending community, the internship programs and full-time em­ individual families. Homeownership Federal Home Loan Bank, and other ployment by participating lending insti­ helps to stabilize neighborhoods and agencies. The state housing commission tutions. These workers spend 20 hours enhances their appeal as places to live provides homebuyer workshops consist­ a week translating information—at and do business. ing of a 5-hour certificate course and homebuyer classes and in one-on-one 6-week intensive training classes. The NewHolly Homeownership Program, homebuyer counseling sessions—and developed by the Seattle Housing NewHolly residents, many of them 20 hours studying the mortgage indus­ Authority at the NewHolly HOPE VI immigrants with limited English profi­ try. Housing authority staff anticipate site, reflects a vision of the importance ciency, may receive translation support. that this training will result in residents’ of homeownership in a low-income Prepurchase counseling, with homebuy­ obtaining permanent, full-time jobs at community. Of the 400 for-sale units er club and individual counseling ses­ mortgage lending institutions within 2 that eventually will be brought online at sions held monthly, helps families clear years. To date, Seafirst/Bank of America NewHolly, 100 will be targeted specifi­ up credit issues, learn to maintain a has hired one public housing resident cally toward buyers who are at or below budget, and establish a savings plan. and Norwest Mortgage is in the process 80 percent of median income. In Phase I Postpurchase counseling helps buyers of recruiting two others. of the redevelopment, 37 of 100 for-sale keep current with mortgage payments The NewHolly Homebuyer Education units are being targeted to public hous­ and provides default prevention counsel­ Program is funded by a 2-year grant ing residents and other low-and-moder­ ing if emergencies arise. of $100,000 from the Fannie Mae ate-income buyers. Buyers who are at or The homeownership program, in part­ Foundation, $97,000 in HOPE VI funds, below 80 percent of median income will nership with lending institutions, offers and $17,000 from the Washington State be assisted in making their downpay­ a variety of mortgage products, dis­ Housing Finance Commission. ment with $1.2 million in HOME funds counts on mortgage loans, and special­ made available by the city of Seattle. The program is making a difference: ized services for buyers. Mortgage The housing authority is working with products will include first-time buyer ■ By April 1999, a total of 211 fami­ Habitat for Humanity in Phase I to loan programs, FHA, VA, conventional lies had completed homebuyer edu­ develop four homes that will be r eserved mortgages, portfolio loan programs, and cation. Fifty families are original for pre-HOPE VI Holly Park families specially designed programs. All loan Holly Park residents who chose to with very low incomes—between 25 programs offer special discounts on remain onsite and 40 are residents percent and 50 percent of the area’s closing costs for low-income buyers. of other public housing projects. median income. On completion, the Downpayment assistance is provided ■ The program has counseled more partners will assess the potential for two through a number of financing than 55 families and is helping additional homes in Phase II. sources—such as HOME funds, housing them to attain homeownership. The program includes education and authority mortgages, and the Federal ■ Seven Holly Park residents have counseling; downpayment assistance; a Home Loan Bank matching savings been identified as lease-to-own range of mortgage products, services, plan—which can be layered to create a financing package affordable to low- candidates for Phase I. Eight public

Appendix 95 HOPE VI: Community Building Makes a Difference

housing residents are in the process This intensive program, funded by budget. Participants may ask questions of receiving preapproval for mort­ HOPE VI and CHA, offers an intensive and explore subjects in depth. gages. By June 1, 1999, more than group educational experience covering The Charlotte program has had a 15 public housing residents were all aspects of homeownership—from remarkable success rate: nearly 75 per- bank-qualified for a mortgage or budgeting to home maintenance—and cent of its graduates have bought or will the lease-to-own program. one-on-one help resolving any personal soon buy a home. Even families with financial issues that may stand in the ■ Two families, former Holly Park res­ incomes as low as $14,000 have been way. The program consists of 2 group idents who took Section 8 vouchers able to become homeowners by working sessions and 1 individual session each rather than move back to NewHolly, with Habitat for Humanity to build their month for 13 months. have been approved for mortgage own homes using sweat equity. loans and are now ready to buy In addition to partnering with area bro­ market-rate homes. The Charlotte program kers, realtors, bankers, and Habitat for ■ Four families not from public hous­ Humanity, the Homeownership Institute ing have been preapproved and are has had a remarkable has set up an advisory council consisting ready to buy affordable homes in success rate: nearly of volunteers from the business commu­ Phase I at NewHolly. nity and local agencies. The council 75 percent of its includes two mortgage bankers, a real- ■ Four residents hired as translators tor, a real estate lawyer, a housing are not only graduates of homebuy­ graduates have bought inspector, a Better Business Bureau regu­ er training, but they have also or will shortly lator, and a mortgage consultant. The developed an understanding of the two alternates are a community develop­ technical information involved in buy a home. ment coordinator and an Urban League buying a home and are able to representative. The advisory council translate it accurately. provides input to the program, serves Many of the group sessions are taught as a resource for families working by area brokers, realtors, and bankers. Homeownership Institute toward homeownership, and promotes Participants receive not only expert and supports programs that provide of the Charlotte Housing advice, but also an opportunity to build these families with educational and relationships with people they may later Authority financial opportunities. work with to buy a home. The pr ogram Juanita Oates, homeownership case has built relationships with six banks, “The Charlotte Housing Authority’s manager for the Charlotte Housing although staff do not encourage partici­ Homeownership Institute is specifically Authority (CHA), was troubled by the pants to seek financing through any designed,” says Oates, “to help low- realization that, as she puts it, “ther e are particular bank. income families achieve their homeown­ so many families who want to own ership goals.” Anyone who is a r esident Staff also work with families to over- homes, but who are not ideal candi­ of public housing or Section 8 housing come their personal barriers to home- dates.” Part of the reason may be finan­ or on the CHA waiting list and is inter­ ownership. This may include coaching a cial—low income or perhaps a poor ested in homeownership is eligible as resident on how to ask her boss for a credit record—while another part may long as he or she has the potential (with raise, helping a potential buyer clear up be an inadequate understanding of the assistance) of becoming mortgage-ready a poor or misstated credit report, or process. This realization led Oates to within 18 months. establish the Homeownership Institute. helping a family learn to stick to a

96 Appendix

U.S. Department of Housing and Urban Development First-Class Mail Office of Public and Indian Housing POSTAGE & FEES PAID Office of Public Housing Investments HUD Office of Urban Revitalization Permit No. G–795

Washington D.C. 20410–6000

Official Business Penalty for Private Use $300