Case 2010-077 Karluk Manor 07/27/2010 Questions to the Petitioner

1. If Karluk is the designated major pedestrian connection, and has only 4' sidewalks in places, shouldn't it have additional safety improvements? Can there be any reduction of lane widths or shoulders and gutters to allow a pedestrian safety barrier? What are other options for physical safety improvements along Karluk?

We believe that the existing pedestrian facilities are sufficient. Based on field measurements, the sidewalks on Karluk are a minimum of 5’ wide and are 5’4” in places in front of the south building, they are 5’ wide on the 6th Ave. side and almost 6’ on the 5th Ave. side. There are existing bulb-outs at the crossing at 5th Avenue. We have an e-mail from the former Traffic Engineer, Bob Kniefel, from May 10, 2010 stating:

Our review of the crash information for the 1998 – 2008 period shows only two reported pedestrian crashes in that 11 year period. This is a very low rate for pedestrian crashes and would not show up on our highest crash rate intersection list. 2. I'd like to hear how RurAL CAP would use the proposed video cameras at Fairview Park? Would Karluk Manor staff who spotted their residents on the monitors be able to go and counsel or collect their residents from the Park, if they were drinking at the Park? Would it be possible to use the videos to get baseline data on drinking/camping in Fairview Park before Karluk Manor began operating, to compare to afterward? This would probably be more valid if there were baseline data from several trouble spots around Fairview.

If RurAL CAP were permitted to install and monitor cameras in the pavilion area of the Fairview Lions Park, we would propose to set the cameras up so that they could be monitored over the internet by staff at Karluk Manor and other interested parties. For example, the Community Service Patrol (CSP) has indicated that they would be interested in being able to access the camera feed over the internet to be able to better address service to this high-demand area. Karluk Manor staff would contact CSP or the Anchorage Police Department (APD) or other appropriate services if individuals were seen breaking the law or in distress. In addition, RurAL CAP has adopted the park and will be visiting it three times per week and performing a cleanup weekly. Already, during one visit, staff found that the lighting in the pavilion area was

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burned out and they reported it to the Parks and Recreation Department immediately. Having access to a remote camera would allow RurAL CAP to remotely monitor the area and report potential issues to the appropriate party (Parks and Recreation for facility or equipment problems, APD for illegal activities, CSP for inebriates, etc.) If Karluk Manor staff observe inebriated Karluk Manor residents in the park, they will ask the resident to leave and will follow up with the resident regarding the violation of the conduct code. Repeated violations would be cause for eviction from the program. RurAL CAP has conducted studies looking at CSP pickups for Homeward Bound residents prior to and after housing. Residents of Karluk Manor would be requested to participate in similar studies. 3. Petitioner’s response to the issues raised by public/commission (only principal issues).

The major issues raised by the public and commission have been addressed in the questions before and after this question, but are summarized below. Pedestrian Safety: As noted above, the intersections near the property have sidewalks, bulb-outs, and crosswalks for pedestrian safety. The MOA Traffic Engineer indicated that this area was not considered to be especially hazardous for pedestrians. As noted during the public testimony, homeless inebriates already regularly cross through these busy intersections. Concentration of Social Services in Fairview: It is true that many social services are located in downtown and the surrounding areas, including Fairview. And, as noted by Planning staff in the attached Environmental Review Checklist, housing programs for low-income and disabled populations should be sited in areas that have access to services geared toward this populations. RurAL CAP did not target Fairview for this housing project and in fact, they investigated possible sites in several community councils, as illustrated in their site selection process (see attached). Affordable and supportive housing operated by public and non-profit agencies is dispersed throughout the community, as shown on the map included in the attachment. Impact of Location on Effectiveness of Housing First: Public testimony on this project questioned the effectiveness of Housing First projects located in the areas where chronic homeless inebriates congregate. Many Housing First properties are located in or near the

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very areas that their residents frequented prior to participation in the program. There are two housing properties in Columbus, Ohio that are very similar to Karluk Manor. Both projects used existing buildings and are located in low-income, high crime-rate areas; areas where the targeted population already congregate. Both housing facilities are located in proximity to bus service, convenient shopping, employment opportunities, and social services. Like Karluk Manor, residents hold their own leases and pay their own rents. They are not required to remain sober or seek treatment; however, case managers are available to help put residents in touch with services if the tenants choose to participate. Each building is designed with a single point-of-entry, 24-hour monitoring, one common area, and meeting space. There are many other examples where Housing First properties are located near downtown areas that have concentrations of chronic homeless inebriates. Seattle’s Downtown Emergency Services Center has 431 residential units located in the downtown/Pioneer Square area and the 1811 Eastlake property is located three blocks from the county sleep-off center. Portland, Denver, and Minneapolis also have Housing First properties located in downtown areas with high concentrations of chronic inebriates. Appropriate Size of Housing First Properties: There is no evidence that any one size of Housing First property is more effective than any other. Housing First properties throughout the country range from small (25 residents in Parsons in Columbus, Ohio) to very large (190 residents in the Morrison Hotel in downtown Seattle). The number of residents that can be housed depends on the size of the property and the staffing level depends on the number of residents housed. Many programs in other cities have renovated hotels for this use, such as the Morrison Hotel (190 residents) and the Union Hotel (52 residents) in Seattle and the Biltmore (76 units) and Butte (38 units) hotels in Portland. Appropriate Level of Services/Staffing at Housing First Properties: The Housing First properties across the country provide varying levels of services to their residents. The primary purpose of Housing First is to provide safe housing for the special needs population. Participation in a treatment program is not required. Karluk Manor staff will, however, interact with the residents on a daily basis and solicit interest in treatment or other services that can be provided to the residents by a number of existing service providers and case managers that work with RurAL CAP on a regular basis. A similar model to the Karluk Manor model is being used successfully at Parsons Apartments and Annishinabe Wakiagun in Columbus, Ohio.

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Like Karluk Manor there are no certified caregivers or registered nurses on site, however, a full-time Service Engagement Specialist (similar to Karluk Manor’s Residential Services Specialist) is employed and located on-site for each property. Impacts on Neighboring Land Uses: As evidenced by the public testimony on this case, the neighborhood around the site and the Fairview Community Council area currently are impacted by high numbers of chronic homeless inebriates. This proposed property would add trained personnel into the area conducting on-going outreach and increase the level of scrutiny and intervention associated with chronic homeless inebriates in the area. RurAL CAP has proven to be a good neighbor in other areas and will work with the neighbors to address any issues which arise related to residents of this property. Impacts on Fairview Lions (Karluk) Park: Again, this is an area that is currently impacted by chronic homeless inebriates. RurAL CAP’s commitment to monitoring and adopting this park is expected to reduce problems in the park, as evidenced by the responses from Parks and Recreation, the Anchorage Fire Department, the Anchorage Police Department and Emergency Services on the Environmental Review Checklist (attached). RurAL CAP has already received favorable feedback from local residents on their cleanup efforts during their recent visits to the park. 4. Petitioner’s statement as to why they believe this application is consistent with the comprehensive plan and with title 21 standards, esp. specific requirements for CU’s.

Consistency with Anchorage 2020: See the attached list of comprehensive plan policies and how this project conforms with them. The zoning ordinance passed by the Assembly on chronic homeless inebriates (AO 2010-3) and the 2008-2012 Consolidated Housing and Community Development Plan (CHCDP) provide the more detailed strategies on how and where housing for this special needs population is appropriate. The ordinance limits the ability to site these facilities in most residential areas. The CHCDP includes affordable housing and strategies. The #1 objectives for those respective strategies are as follows: • Affordable housing: Expand the supply of affordable rental housing opportunities for low- and extremely-low income households, with emphasis on special needs and homeless. Karluk Manor would undeniably expand the supply of affordable rental housing opportunities for extremely low- income individuals who are disabled and homeless.

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• Homelessness: Expand the supply of rental housing for special needs populations, with an emphasis on the homeless. Again, Karluk Manor would undeniably expand the supply of rental housing for disabled homeless individuals. Conformity with Title 21 Standards: The proposed site is currently zoned B-3. Severe Alcoholic Dependent Housing is allowed as a conditional use in this district (AO 2010-3). The following summarizes the project’s consistency with the ordinance. Parking: Parking for the proposed use is calculated at one parking space per four units, or 12 parking spaces. The property will use the existing 15 parking spaces located in the parking garage on the south end of the site. Separation Criteria: The proposed property meets the distance criteria for all uses except for the separation from a public park. The separation distances adopted in the ordinance are not based on a rigorous analysis of the effectiveness and appropriate separation distances based on experience in other cities. The distance proposed varied from 1,250 to 200 feet throughout the deliberation on the ordinance. In the end, a 500-foot separation was included but the ordinance specifically allowed for the Planning and Zoning Commission to reduce that distance based on a site-specific analysis of each proposed project. This allowance recognized that the 500- foot separation distance is not a magic number, but a guide to be used in general cases. RurAL CAP is requesting a reduction in the minimum allowed separation distance from the Fifth Avenue Buffer Park and the Fairview Lions (Karluk) Park. The Fifth Avenue Buffer Park is a steeply sloped parcel located adjacent to the Cook Inlet Pre-trial Facility. The parcel is more of a road buffer landscaping area than a publicly-used park. In fact, the original maps provided by the Municipality showing park areas and setbacks did not include this area as a park. As noted in the Planning staff analysis, the separation from this buffer park is over 300 feet in a straight line and 435 feet in walking distance. The Planning Department found this distance to be sufficient given the nature of this buffer park. The southern property line is within 500 feet from the northwest corner of Fairview Lions (Karluk) Park. RurAL CAP is requesting a reduction in the minimum allowed separation district from this park. The proposed housing property is located 430 feet from the site in a straight line. The park is located over 500 feet from the sole entrance to the housing units. In addition, the site is separated from the park

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by a four-lane major arterial road and a number of commercial developments. The portion of the park that is within 500 feet of the southern property line of Karluk Manor is the northwest corner of the park, which consists of a buffer landscape area. The more heavily used areas of the park, including the covered cabana, children’s play equipment, and picnic tables are all located on the south and eastern ends of the park – well outside the 500-foot distance from the Karluk Manor site. Approval of Karluk Manor at this site will result in a property that has screening of residents, exclusion of sex offenders and violent criminals, and staffing to monitor its residents activities. This contrasts with the existing permitted uses, such as roominghouses, hotels, and other housing that would not have screening or this level of staffing and which would not exclude sex offenders or violent criminals. Therefore, the proposed use actually reduces the potential for resident impacts on the park compared to other permitted uses. RurAL CAP acknowledges that this park is currently impacted by homeless inebriates and the CSP has indicated that they get a high number of calls for this area. RurAL CAP has agreed to adopt this park and to visit it three times per week to monitor use and to clean up the park weekly. In addition, RurAL CAP has proposed installing two security cameras to allow for real-time monitoring of activities in the park. We believe that the situation in this park will be improved with RurAL CAP’s active involvement in monitoring the site, as compared to the current situation. On-site Services Limited: On-site services will be for residents of the property only. As previously discussed, visitors are not considered to be clients of the program and as such will generally not be eligible to use program services like meals, groups, and activities. If it is determined that allowing residents to invite visitors to participate in some activities like meals may be useful in helping residents stabilize, however, occasional exceptions may be made to this rule. A fee for non-resident meals may be charged. Building Compatibility with Neighborhood Character: The renovations to the existing building are compatible with the scale and character of the surroundings, and exterior building materials are harmonious with other buildings in the area. Appropriate transition buffering using landscaping, etc.: Existing development in the neighborhood does not typically have landscaping or other screening. The proposed housing development will use the existing building and site with minor renovations. A

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small landscape buffer and a wrought-iron fence has been incorporated along Karluk Street and along Fifth Avenue. The proposed site improvements are compatible with the adjacent commercial uses, and meets or exceeds the current character of the neighborhood. Management Plan: A complete management plan has been developed addressing these issues. The management plan was submitted to the surrounding community councils and the Federation of Community Councils on June 1, 2010. In response to public comments, RurAL CAP has been proposing changes to various management plan elements. RurAL CAP would propose to update the existing management plan to incorporate the proposed conditions of approval submitted in our July 9 submittal, including: • RurAL CAP shall install an elevator in the south building to provide access to the rooms on the upper floors. • RurAL CAP shall provide a heated segment of the driveway to create a heated path from the south building to the covered walkway on the north building. • RurAL CAP shall conduct a neighborhood survey two times during the first year of operation and annually in following years to receive feedback from the neighboring businesses and Fairview residents on what is working well and areas needing improvement with the management of Karluk Manor. • RurAL CAP shall provide 24/7 contact information to all Fairview residents and businesses. Intervention will be required to rectify any conflict between residents of Karluk Manor and neighboring businesses and residents. This contact person shall attend Fairview Community Council meetings each month they are in session. • RurAL CAP shall provide on-site meals, seven days a week, to residents. • RurAL CAP will work with the MOA Parks and Recreation Department and the CSP to install and monitor cameras at the Fairview Lions (Karluk) Park. • RurAL CAP shall undergo an annual non-public hearing administrative review before the Planning and Zoning Commission. • RurAL CAP will track complaints from the community and the resolution of those complaints and will submit this to the Planning and Zoning Commission during the annual review. Copies of the approved revised management plan would be provided to surrounding community councils and posted on RurAL CAP’s website.

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Site Access on Collector or Higher: The site is bound by East 5th Avenue to the north, East 6th Avenue to the south, and Karluk Street to the west. Both East 5th Avenue and East 6th Avenue are major arterials and Karluk Street is a Class I Collector. This meets the access requirement in AO 2010-3. Three-year Review by PZC: As noted previously, RurAL CAP is willing to return to the Planning and Zoning Commission annually to review the status of operations and report on complaints received from the neighborhood and how these were addressed. CUP Standards of Approval: Compatibility with existing and planned uses: Karluk Manor is compatible with the existing and planned land uses in the surrounding neighborhood. The site and all adjacent properties are zoned B-3 and are developed as commercial uses. The majority of the surrounding neighborhood is also developed as commercial uses, with some institutional uses. The proposed site was previously operated as a hotel and high-density multi-family housing is a permitted use on the site. The site is not located adjacent to or near a residential neighborhood or school. The site is located within walking distance to a number of services appropriate for Karluk Manor residents, including Job Service, Alaska Women’s Resource Center, Social Security Administration, the Transit Center, Carr Grocery Store, Cash America, a neighborhood health clinic, Nine Star, and Adult Public Assistance. Additionally, the site is conveniently located to two People Mover bus routes, with bus stops located at both the intersection of East 5th Avenue and Karluk Street and East 6th Avenue and Karluk Street. The proposed use is essentially structured multi-family housing for a special needs population, with more screening and monitoring than would occur for any other permitted residential uses allowed in this zoning district. Impacts compared to other permitted uses: Pedestrian, vehicular traffic circulation and safety: The site is bound by East 5th Avenue to the north, East 6th Avenue to the south, and Karluk Street to the west. Both East 5th Avenue and East 6th Avenue are Major Arterials and Karluk Street is a Class I Collector. Vehicular access to the site will be restricted to Karluk Street. The site is well-sited for pedestrian and transit access. Bus stops are located at both the intersection of East 5th Avenue and Karluk Street and East 6th Avenue and Karluk Street. According to the MOA Traffic Engineer, these intersections have a fairly low incidence of vehicular/ pedestrian accidents with only

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2 minor vehicular/pedestrian accidents occurring within the last 10 years. Also, please see comments from the police and emergency services on the Environmental Review Checklist (attached). The number of residents is lower than the allowed number for a hotel, roominghouse or other high-density residential uses that are permitted uses in this zone. Most residents would not own a vehicle, so only staff and visitors are expected to access the site by vehicle. Residents will primarily use the People Mover and the Karluk Manor van service for transportation. The proposed use is likely to reduce traffic volumes from other permitted uses in this zone, such as roominghouses, hotels, or high-density multi-family residences. The Traffic Department has indicated that they do not believe that the site will result in any significant increase in pedestrian traffic or safety issues (see e-mail attached). Demand for and availability of public services and facilities: The site is already connected to water, sewer, storm drainage, electrical, gas, cable, and telephone connections. As mentioned above, the occupancy of the property for Karluk Manor is expected to be lower than allowed under the previous use or other permitted uses. The proposed housing development is not expected to create additional demand on public services and facilities. Housing First models in other states have shown this type of project to reduce demand on emergency services and community service patrols. (See comments from police and emergency services in Environmental Checklist attached.) Noise, air, water or other pollution: The proposed housing is not expected to generate noise, water, air or other environmental pollution. Maintenance of compatible and efficient development patterns and land use intensities: The site and all adjacent properties are zoned B-3 and are developed as commercial uses. High-density residential housing of not less than 12 dwelling units per acre is an allowed principal use in the B-3 district. Additionally, group housing and other residential care facilities are allowed primary uses in the B-3 district; therefore, Karluk Manor is a compatible development and maintains the appropriate land use intensities. The location maintains efficient development patterns as the site is located within walking distance to a number of services appropriate for residents of Karluk Manor, including the Alaska Women’s Resource Center, Social Security Administration, the

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Transit Center, Carr Grocery Store, Cash America, a neighborhood health clinic, Nine Star, and Adult Public Assistance. Additionally, the site is conveniently located to two People Mover bus routes, with bus stops located at both the intersection of East 5th Avenue and Karluk Street and East 6th Avenue and Karluk Street. 5. What would be the consequence of this CU not being approved?

Without the Conditional Use Permit, RurAL CAP will not receive the approved safe housing funding and, therefore, will not be providing safe and secure housing for 48 special needs residents of Anchorage. RurAL CAP would lose over $3.5 million dollars worth of funding from the Alaska Housing Finance Corporation (AHFC) to purchase and operate the Housing First property in Anchorage at Karluk Manor. RurAL CAP was honored to receive the largest number of project-based vouchers specifically to operate the Special Needs Housing Grant project at Karluk Manor. The AHFC notice of grant award specifically states that to receive the funding for the acquisition, rehabilitation, operations and supportive services for Karluk Manor, we must receive a Conditional Use Permit for the property. The Mayor’s Leadership Task Force on Homeless Chronic Inebriates has endorsed this project as a top priority for dealing with this important issue in Anchorage. It is consistent with the guidance of the comprehensive plan and the CHCDP. If the CUP is not approved, the community will have lost an opportunity to take action consistent with the goals in the comprehensive plan and the strategies outlined in the CHCDP and the Mayor’s Strategy on Homelessness. Although it is possible that another Housing First project could occur in the future, the loss of funding and lack of support for this project would likely reduce the potential for future funding of a similar program. In effect, RurAL CAP would have to start over on a new project - finding an alternative site that meets code requirements, developing the program, obtaining financing, acquiring the site, and obtaining a conditional use permit. Obtaining financing for this project was not easy and may not be available right away for an alternative project for this target population. In addition, it is likely that any future conditional use permit required for a new site will be as contentious as this current process. 6. Were alternative sites investigated and why were they not selected. Said differently, why is this site the best?

As described in the original application, RurAL CAP has been searching for an appropriate site for a Housing First property for

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approximately three years. A summary of sites evaluated for this project is included in the Site Selection Summary attached. Using a set of eight criteria, potential Housing First properties were identified and evaluated over a three-year period. RurAL CAP first attempted to construct a rental property from the ground up for this special needs population. RurAL CAP completed the initial application for a Low Income Housing Tax Credit project for a property proposed to be located on Eagle Street in the Downtown Community Council. The cost estimate to build a 25-unit building was over $8 million dollars. The project was not developed beyond the initial predevelopment stage due to the cost of the project and the inability to secure this level of financing. The Red Roof Inn contained all of the essential elements needed to operate a successful and financially feasible project. The decision to purchase the Red Roof Inn was based on its room capacity, the cost per unit, the proximity to services, bus lines, food delivery, etc. In addition, the site meets all but one of the Severe Alcohol Dependent Housing Ordinance regulations put in place with AO 2010-3. Finally, it is located within the area where many homeless individuals currently reside. At 1104 E. 5th Avenue, the housing complex will safely 48 disabled people who are without homes in the Fairview area. The proposed site provides an efficient means to house a reasonable number of residents at a reasonable cost; it meets most of the standards outlined in the Severe Alcohol Dependent Housing ordinance (including zoning), and is located convenient to the support services that this population uses (transit routes, employment centers, etc.) The site is the best site that RurAL CAP has been able to find and the program and site improvements have been developed to successfully house this special needs population in a safe and efficient manner. 7. Petitioner’s set of conditional use stipulations, including any changes as a result of the public hearing review.

RurAL CAP is proposing the following conditional use stipulations as a result of public input throughout the development of this proposal. These conditions would be incorporated into a final management plan which would be provided to surrounding community councils and neighboring businesses and posted on the RurAL CAP website. • RurAL CAP shall install an elevator in the south building to provide access to the rooms on the upper floors. • RurAL CAP shall provide a heated segment of the driveway to create a heated path from the south building to the covered walkway on the north building.

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• RurAL CAP shall conduct two neighborhood surveys during the first year of operation and annually in following years to receive feedback from the Fairview residents and neighborhood businesses on what is working well and areas needing improvement with Karluk Manor. • RurAL CAP shall provide 24/7 contact information to all Fairview residents and businesses. Intervention will be required to rectify any conflict between residents of Karluk Manor and neighboring businesses and residents. This contact person shall attend Fairview Community Council meetings each month they are in session. • RurAL CAP shall provide on-site meals, seven days a week, to residents. • RurAL CAP will work with the MOA Parks and Recreation Department and the Community Service Patrol to install and monitor cameras at the Fairview Lions (Karluk) Park. • RurAL CAP shall undergo an annual non-public hearing administrative review before the Planning and Zoning Commission. • RurAL CAP will track complaints from the community and the resolution of those complaints and will submit this to the Planning & Zoning Commission during the annual review. 8. There is concern that the sidewalk on Karluk is too narrow for the expected use. What can be done to fix that? Narrow the patio area so there will be more space on outside of the new fence?

Based on field measurements, the sidewalks on Karluk are a minimum of 5’ wide and are 5’4” in places in front of the south building, they are 5’ wide on the 6th Ave. side and almost 6’ on the 5th Ave. side. There are existing bulb-outs at the crossing at 5th Avenue. Therefore, we believe that the existing pedestrian facilities are appropriate for this area and the proposed use. As mentioned in #1 above, the former City Traffic Engineer noted that the intersections had a low rate of pedestrian crashes (see attached e-mail). 9. Snow storage is on the outdoor patio area. How much snow storage space is expected?

Since the majority of the site is covered, there will be few areas that accumulate snow and need to be cleared. RurAL CAP typically has snow hauled from their other housing sites a few times per year and could provide snow hauling for this property if snow storage capacity were to become an issue.

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10. Comments re: state of surrounding the sidewalks in the winter.

Karluk Manor will maintain the sidewalks adjacent to the property during the winter. 11. Do you need a loading berth? Food for more than 50 people twice a day every day.

Meals will be delivered from Beans Café in a van. These meals are served family style and delivered in large serving trays. Beans Café provides this service to several other properties, none of which have a loading berth. This is proposed as a residential property and there is not expectation for servicing by oversized delivery trucks. Residential uses are not required to have loading berths under AMC 21.45.090. Karluk Street has parking on both sides of the street. Our observations have been that there is rarely more than one vehicle parked in the available spaces, so occasional parking needs can be met. 12. Bike rack location?

A bike rack could be located in the covered parking area or in the outdoor patio area. 13. How much space for the twice daily meals? Are there meal times? Diagram shows 9 tables with 28 seats.

Meals will be served in two shifts, so 28 seats will be more than enough. Also, some residents may decide to take their meals back to their rooms. 14. Taxi Cab loading and unloading zone?

Karluk Street has parking on both sides of the street. Our observations have been that there is rarely more than one vehicle parked in the available spaces, so occasional parking needs can be met. 15. Emergency vehicle access. Where will they park? This has been called a medically fragile population. The stats we have show frequent need for emergency services.

Karluk Street has parking on both sides of the street. Our observations have been that there is rarely more than one vehicle parked in the available spaces, so occasional parking needs can be met. Emergency vehicles could also come into the secured area on the area between the buildings or on the patio, if required. Also, please note that emergency service divisions reviewed this project and did not indicate any concerns with emergency access.

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16. Is there uncontrolled access into the open area? Will the gates at the NW corner to open area and SW corner to parking area be locked?

Residents have free access to the patio. Gates will be locked and alarmed and opened only in an emergency. 17. Is this primarily a treatment facility or a residential facility?

This proposal is for a residential development; housing for a special needs population. It is not a treatment facility. It is not a rehabilitative care facility. It is an affordable housing complex for a protected class of disabled people. It is housing with support for access to services available, but not required. 18. Respond to statements that this is institutionalizing people without proper care. That smaller more homelike settings spread out through the community would be more appropriate. Karluk Manor is proposed as a housing development, not a treatment facility. The Housing First model, which has been shown to be successful in many other cities, is based on providing housing with no pre-conditions for participation in treatment programs. First and foremost, Karluk Manor is safe and affordable housing for extremely low income, chronic homeless alcoholics. It is not an institution. The level of care amenities proposed is consistent with the model as implemented in other cities and has been reviewed and approved by the agencies that are most knowledgeable and experienced (the AHFC and the Alaska Mental Health Trust) at serving the targeted population. This project received the highest ranking of all of the grant applications for affordable housing funding. The grant award confirms that professionals in the housing field found the project to be well-planned, financially sustainable, adequately staffed and with appropriate services and safety measures in place to provide safe and secure housing for this population. Providing smaller more homelike settings spread throughout the community would not be financially feasible and would not be achievable under AO 2010-3, as this use is not allowed in most residential zoning districts. 19. What events or criteria would RuralCAP use to measure the success or failure of this project?

The primary measure of success with a housing program is the length of time a tenant remains safely housed. Other methods of evaluation may include surveying the neighbors twice per year,

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monthly reports regarding the project to the Fairview Community Council, the amount of hours recorded for volunteer activities on and off site, etc. The program will receive annual internal and external audits as well as program monitoring by AHFC. The audits and program monitoring are required activities under the grant. The agency will also be submitting quarterly and annual reports which provide detailed descriptions of the milestones achieved by the tenants and the program itself. Residents will also be asked to participate in a study of the number of higher level services (emergency service through area hospitals, number of CSP pick-ups and APD/AFD contacts) accessed before and after becoming a resident. Measures of Success: • Length of Time in Housing ƒ Measurement of the length of time that each resident remains housed. • Reduction of CSP Calls ƒ Measured by the number of nights spent in the CSP center during the year before housing compared to the number of nights spent there after housing. • Resident Participation in On-Site and Off-Site Activities ƒ Measured by the number of activities each resident participates in, including on-site activities like movies, house-cleaning, etc. and off-site activities, such as Fairview Lions Park Clean-ups or other activities. • Neighborhood Complaints ƒ Measured by tracking complaints (phone calls, visits, letters) and responses to be provided as an annual report to Fairview Community Council and the Planning and Zoning Commission. ƒ Measured by two surveys of Fairview residents and local businesses during the first year of operation and annually thereafter. 20. What would trigger closing the facility?

Non-compliance with grant requirements, with federal, state and municipal standards for safe housing, or non-compliance with conditional use permit conditions. 21. After 3 years there would be a review by the PZC. Can a change in the management plan include requirements that would effectively end the program? What would happen to the tenants then?

RurAL CAP has volunteered to be reviewed on an annual basis.

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The operation of this housing complex must meet the regulations of the Fair Housing Laws, AHFC, the conditions of the grant, and the conditions placed on the CUP. Minor changes to the management plan to address neighborhood or Planning and Zoning Commission concerns can be accommodated at any time. Any major changes would need to be approved on an annual basis as part of the funding agencies’ annual review of the housing property. RurAL CAP has successfully operated programs in Anchorage for 45 years and has never had to shut a program down. If the program were closed for some reason, RurAL CAP would attempt to find the residents alternative housing. Given current housing conditions in Anchorage, this would ultimately result in most tenants ending up back on the street in the same areas they frequented prior to their residence at Karluk Manort. 22. What if RurAL CAP finds it needs more staff? Is there money available? If not, then what would happen? RurAL CAP is experienced at operating similar types of housing projects and has spent significant time and effort developing the program budget to meet the needs of the project. The staffing levels were approved by AHFC. Once the tenants have been selected, the level of staffing will be reviewed against what has been proposed and funded in the Special Needs Housing Grant program. Increases or reductions in staffing will be determined based on actual tenant needs and direct experience. Staffing levels and critical incidences are both components of the annual monitoring that will be conducted by AHFC and the Alaska Mental Health Trust Authority. If it appeared that more staff were needed, the budget would be revised and more staff would be hired. 23. Several comments state that successful Housing First projects have significant case management on-site and this proposal has limited or no requirements for licensed professionals on site. Is this correct?

The Housing First model has been implemented in a variety of ways throughout the country. The premise of Housing First is that treatment is not required, but is available to residents if they are willing to participate. The Karluk Manor model has been used successfully and specific examples are Parsons Apartments and Annishinabe Wakiagun in Columbus, Ohio. As proposed at Karluk Manor there are no certified caregivers or registered nurses on site, however, a full-time Service Engagement Specialist (similar to Karluk Manor’s Residence Specialist) is employed and located on-site for each property.

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The Division Director overseeing this project is a Licensed Professional Counselor and a Certified Clinical Supervisor. The case management provided at Karluk Manor will be provided by the partner agencies currently providing case management for other RurAL CAP properties. These agencies are: Anchorage Community Mental Health Services, Anchorage Housing Initiatives Coming Home I and Coming Home II programs, Alaskan Aids Assistance Association, Clare House, Cook Inlet Tribal Council, Pathways to Sobriety, etc. RurAL CAP’s Homeward Bound Division Manager and Housing Supervisor have 20 years of combined experience working with this population. Their offices will be located in Karluk Manor and they will be directly overseeing Operations and Residential Services staff working at Karluk Manor. Management staff will work with partner agencies to provide on-site services such as: itinerant nursing, mental health counseling, nutrition education, reintegration activities, budgeting, to name a few. 24. How long is the current funding assured for?

The funding for the operations and supportive services is three years. We have been assured that Special Needs Housing Grant funding will be continued. The agency also has 35 project-based vouchers which will be available every year as long as the project exists. The other 13 units in the building are eligible for Housing Choice vouchers from AHFC. The rental income from the 48 units provides essential revenue for the program. 25. The management plan says the residents can only drink in their rooms. They can still drink outside of the building, correct?

Residents may only drink in their rooms at Karluk Manor. They may not drink in common areas or in the outside area of the building. They may not loiter, panhandle, or otherwise act inappropriately in neighboring areas. 26. Are Anchorage’s CHA’s “social drinkers” not likely to drink privately inside?

According to current research, chronic homeless alcoholics, when provided with housing with attractive amenities such as food, bathroom facilities, comfortable surroundings, etc tend to stay in their apartments. These are not “social drinkers.” These are end- stage alcoholics that are disabled and they tend to stay indoors when given the chance. There is no evidence to suggest that chronic

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homeless alcoholics in Anchorage would react any differently in housing than similar populations in other communities. RurAL CAP has local experience which is consistent with the findings in other communities. Formerly homeless residents that were often picked up by CSP for public inebriation but are now housed in RurAL CAP properties, spend most of their time in their homes. This is evidenced by the high utility rates associated with RurAL CAP housing from people staying inside throughout the year. 27. Visiting hours are initially 9am-8pm but subject to change with experience. What limits on the hours would be reasonable?

The visitation policies are based on successful policies used at other Housing First properties in other communities. The hours are based on the ability for tenants to properly socialize and for the staff to monitor guests. No more than 10 guests will be allowed on the property at one time. The agency may change the total number of visitors allowed, visiting hour start and end times, or put other conditions in place if needed in order to maintain the safety and security of the property. 28. What is RurAL CAP’s ability to control behavior off-site? The management plan has good behavior as a requirement of the lease, but comments suggest that might be counter to Alaska tenant law and letters from CSS and Bean’s Cafe to Mr. Alleva’s attorney state clearly that they have no control over their clients off their premises. How would Karluk Manor be different?

The Landlord Tenant Act acknowledges that every landlord has rules and regulations and that these can be made a part of the property lease. Having a behavioral contract with the tenants in Karluk Manor is perfectly legal and is not in violation of the Landlord Tenant act. If a person violates their lease agreement – which includes the rules and regulations or behavioral contract – RurAL CAP can and will see it as a lease violation and follow the provisions of the Landlord Tenant Act to proceed with evection if necessary. 29. The management plan says KM will “respond to complaints.” The neighborhood appears to be looking for more active participation in preventing problems. What can KM do?

RurAL CAP has joined the Fairview Community Council and will attend their monthly meetings to provide updates on the housing project and hear any concerns or complaints from the community. RurAL CAP will also survey Fairview residents and neighboring businesses two times during the first year of operations and annually thereafter to gather feedback on comments and concerns

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from them. RurAL CAP has also volunteered to install cameras at the Fairview Lions (Karluk) Park to allow for additional real-time information on any illicit activities or problems in the park. If desired, Karluk Manor would also be willing to host up to four neighborhood open during the first year to allow interested parties to come in and see the housing and talk to residents and management about any concerns and/or suggestions. 30. Annual recertification will be required for residents. What happens if they no longer qualify? Where would they go?

The annual recertification of residents is related to required income certifications. For a resident to no longer quality, it would mean that the resident’s income has increased to a level where is not required. In this event, Karluk Manor staff would work with the resident to transition them to alternative housing. This would be a very desirable situation, but is not likely to be a common occurrence.

31. What happens when a tenant commits a crime, are they allowed to come back while awaiting trial? What if it is a violent crime?

Karluk Manor is a residential property. If a resident is charged with a crime but released pending a trial, they have the right to occupy their residence. (The alternative is that the resident is put out onto the street to await trial.) If a resident is convicted of a sexual offense or a violent crime, the resident would be evicted from the property.

If at any time, a resident is considered to pose a threat to the safety of other residents, that resident will be evicted from the property and the police or CSP will be contacted if appropriate.

32. If there are lots of problems and it appears to be a shortage of staff, does RurAL CAP have the funds to add staff? How would we know any of this?

This is answered in #21. Financial and programmatic audits will be available to the public to ensure that the program is meeting its goals. The agency is willing to come before the Planning and Zoning Commission for review every year rather than every three years. 33. Why didn’t Dowl HKM provide us with more information on various other “wet” houses that are working out down in the States? If we are lead to believe that this does work, then where is the information?

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RurAL CAP has provided information on other Housing First properties and the Housing First model has been supported and approved by the Mayor’s Leadership Team. Even many of the community members that testified against this project have indicated that they support the program in general. Attached is supplemental information on a variety of Housing First properties that are successfully operating in several different communities. 34. Can we ask for a bigger elevator so that people can get out on a gurney if they need medical help?

The elevator that has been specified for this property is ADA- compliant and can accommodate a gurney according to Otis Elevator. 35. Has Building Safety and the Fire Inspector reviewed these plans at all?

RurAL CAP has met with the MOA Building Safety Department and the Fire Department and has discussed the needed improvements associated with this proposed use. No major problems were identified during these reviews. Comments from the Fire Department (and other departments) are summarized in the attached Environmental Review Checklist.

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Attachments

Attachment 1 – Environmental Review Checklist Attachment 2 – Municipality of Anchorage Traffic Department E-mail Attachment 3 – Site Selection Process Attachment 4 – Affordable Housing Attachment 5 – Comprehensive Plan Policies Attachment 6 – Supplemental Information on Housing First Properties

Attachment 1 – Environmental Review Checklist

Attachment 2 – Municipality of Anchorage Traffic Department E-mail Tuttell, Maryellen

Subject: FW: Karluk Manor and Traffic

From: Kniefel, Robert E. Sent: Monday, May 10, 2010 11:39 AM To: O'Neill, Corrine L. Cc: Jones, Greg; Thompson, Ron J.; Angell, Mada M.; Coop, Leland R. Subject: RE: Karluk Manor and Traffic

1. Pedestrian Routes – The proposed facility is located on the east side of Karluk Street between 5th and 6th Avenues. At the intersections of 5th and Karluk and 6th and Karluk we have full intersection signals with pedestrian crossings. Fifth Avenue and Sixth Avenues are Major Arterials on the Official Streets and Highways Plan (OSHP) and are operated by the ADOTPF. Karluk Street is a Class 1C Residential Collector street and is operated by the MOA. The intersection signals included pedestrian Walk/Don’t Walk signals. These intersections have the standard signals and pedestrian indications for locations within the CBD area. 2. Our review of the crash information for the 1998 – 2008 period shows only two reported pedestrian crashes in that 11 year period. This is a very low rate for pedestrian crashes and would not show up on our highest crash rate intersection list. 3. The addition of the 38 residents will not significantly increase the pedestrian foot traffic in the area versus its former use as a motel.

Let me know if you need anything else.

Thanks

Bob Kniefel MOA Traffic Director 343-8070

From: O'Neill, Corrine L. Sent: Thursday, May 06, 2010 12:04 PM To: Kniefel, Robert E. Cc: Boehm, James H. Subject: Karluk Manor and Traffic

Hi Bob,

I think that you are meeting with Tim Potter and may be discussing Karluk Manor (Red Roof Inn) today. We would like just some general information on pedestrian and traffic issues around the Red Roof Inn in order to document some of the issues that have been brought-up in public comments. If possible, could you answer these question and provide any other information you feel is pertinent.

1. What are the likely pedestrian routes from this building? Do these have appropriate crosswalk, pedestrian signage, etc.? 2. Have there been a history of pedestrian accidents at these intersections? 3. There will approximately 38 people living permanently in this building. They will have two meals a day in the building and may or may not choose to leave the building as necessary. Unlike a shelter they will not be released at certain times of they day. They also have access to vanpool services from RurAL CAP. In your opinion would

1 this significantly increase the foot traffic in this area? Planning and Neighborhoods did a parking study of affordable housing two years. The number of vehicle usage and need for parking at affordable housing properties is generally low.

Corrine O'Neill, MSW Director Department of Neighborhoods Municipality of Anchorage P.O. Box 196650 Anchorage, AK 99519-6650 Tel: 907-343-4182 Fax: 907-343-6831

2 Attachment 3 – Site Selection Process

Appendix VI: Site Selection

RurAL CAP conducted a vigorous site search and selection process using the following site selection criteria:

Primary Criteria 1. An existing structure (not new construction) with efficiency unit configuration to accommodate single room occupancy 2. Minimal rehab costs, i.e. single building entry to ensure resident and neighborhood safety, no severe damage, no access issues, sprinklered 3. Yard space for resident use 4. No more than 100 units and no less than 30 units in the property to achieve economy of scale for service delivery and operational cost 5. Accessibility to bus routes, employment, and services for the target population 6. Located in a primarily non‐residential area with good access and traffic control to ensure minimal impact on residential neighborhoods and safety of project residents 7. Proximity to target population in order to remove them from residential streets and provide safe housing 8. Total cost less than $3 million.

Eight sites were considered, as outlined below:

Community Location Property Description Criteria Met Outcome Council Name

3503 Indiana Street Spenard 10 unit, 4, 5, 8 Rejected

3‐&4‐bedroom 24‐unit licensed care 3201 E. Tudor Road University 2, 5, 8 Rejected facility

720 Gambell Street Samovar Inn Fairview Former motel 5, 6, 7 Rejected

N/A cost to change 1355 Gambell Street Fairview Commercial property Rejected from commercial to residential too great 640 W. 36th Avenue Qupquqiag Inn Midtown Mixed dorm‐style 5, 6, 8 Rejected & hotel rooms 3543 Mountain View Former site of N/A – set aside for Mt. View Vacant 2‐acre parcel Rejected Drive John’s Motel cultural center

1st Street & Eagle Street Downtown Undeveloped parcel 3, 4, 5, 7 Rejected

1104 East 5th Avenue Red Roof Inn Fairview 40+ unit hotel 1, 2, 4, 5, 6, 7, 8 Accepted

Karluk Manor Management Plan Page 33

Attachment 4 – Affordable Housing

GOVERNMENT HILL

MT. VIEWVIEW DOWNTOWNDOWNTOWN RUSSIANRUSSIAN JACKJACK PARKPARK

NORTHEASTNORTHEAST SO.SO. ADDITIONADDITION FAIRVIEWFAIRVIEW AIRPORTAIRPORT HEIGHTSHEIGHTS

NORTHSTAR

ROGERSROGERS PARKPARK TURNAGAINTURNAGAIN SCENIC UNIVERSITY AREA SCENIC FOOTHILLSFOOTHILLS MIDTOWN TUDORTUDOR AREAAREA SPENARDSPENARD

CAMPBELLCAMPBELL PARKPARK

BASHERBASHER

TAKU/TAKU/ CAMPBELLCAMPBELL

SANDSAND LAKELAKE

OLD SEWARD/ OCEANVIEWOCEANVIEW

MID HILLSIDE

HILLSIDEHILLSIDE EASTEAST BAYSHORE/BAYSHORE/ KLATTKLATT

P:\Projects\D60518\PLANNING\ILLUSTRATOR\AFFORDABLE HOUSING.ai August 2010 Figure 1 AFFORDABLE HOUSING LOCATIONS RURAL CAP / KARLUK MANOR ANCHORAGE, ALASKA Attachment 5 – Comprehensive Plan Policies Policy # Policy Description Policy Met 1 The Land use policy map shall guide land use decisions until such time as other strategies are adopted that provide more Y specific guidelines. • Zoning is strategy that provides more guidance. 7 Avoid incompatible uses adjoining each other. Y • Zoning ordinance requires use to be in non‐residential area. • Use is consistent and compatible with adjacent commercial uses. 11 Mixed‐density residential development shall be permitted in identified zoning districts provided the development Y maintains or improves the functional and aesthetic characteristics of the surrounding development and maintains or improves adjacent transportation access and traffic flow. • Project maintains functional and aesthetic character of surrounding development. • Project maintains or improves adjacent transportation access and traffic flow. 16 Adopt standards to ensure that new residential developemnt provides for a variety of lot sizes and housing types for a Y range of households and age groups. • Provides new type of housing for special needs households. 46 The unique appeal of individual residential neighborhoods shall be protected and enchanced in accordance with applicable N/A goals, policies, and strategies. • This site is loctaed in a commercial area so this policy is not applicable. 56 Anchorage 2020 goals, policies, and strategies shall guide development of the of the Housing & Community Development Y Consolidated Plan in terms of the location and density of housing development. • A significant component of the Consolidated Plan is promoting "Housing First". 57 Y Encourage the maintenance and upkeep of existing housing in order to extend its useful life and neighborhood stability. • This project will enchance and repair an existing building extending the life of the building. 58 Encourage more affordable housing, including home ownership opportunities for low‐income residents. Y • This is a form of affordable housing for a low‐income population that would otherwise be homeless. 60 Design attractive affordable housing that is suited to its environs Y

• The proposed upgrades and enchancements will result in attractive afforadable housing that suits its environs. 61 Y Promote the availibility of suportive housing opportunities for the homeless and for persons with special needs. • Number 1 recommendation on this issue from the Mayor's Homeless Leadership Team. 62 Distribute throughout the Municipality residential facilities that are supported by government agencies and operated for Y health, social services, or correctional purposes. • See figure of residential facilities. Attachment 6 – Supplemental Information on Housing First Properties

Housing for Alaska Mental Health Trust beneficiaries BRIEFING

Housing First program considerations PAPER Why do people need help remaining in 3. Use of a harm reduction model for substance housing? use: addressing the harm caused by elevated substance use while not forcing elimination The Alaska Mental Health Trust provides services to of the use completely. people with mental illness, chronic alcohol 4. Pairing of the housing with intensive addictions, developmental disabilities and (oftentimes around the clock) case Alzheimer’s disease and related dementia conditions, management and on-site support including conditions like traumatic brain injury. services, even in circumstances where Oftentimes, a disabling condition limits a person’s participants leave the housing temporarily. ability to perform everyday tasks that most people Case management follows the person. take for granted. Creating order and habits that lead Below are some frequently asked question about the to stability can be a challenge if one’s thinking is not location and type of housing structure. First and clear or impacted by substances. Areas such as time foremost, the principle of Housing First is that this is management, shopping, cleaning, self care, hygiene, a voluntary program and takes into account where social connections and money management can be the resident wants to live. impacted and disorganized. If these skills are not sufficiently taught or maintained, a person can fall Location, size and configuration into homelessness, develop or increase addictions, Location and size varies by project and community. There is no “one way” to break social rules and/or end up in jail or become so implement the Housing First model. mentally ill he/she may quire hospitalization to • Scattered site vs. one location. Scattered become stable. site refers to renting market rate units

What is Housing First? anywhere in a community. There are many configurations of these Some models of supported housing focus on combinations. Each housing project must individuals who are the most challenging to engage develop projects according to the and who have not been able to maintain housing. community, housing stock and need and Housing first is such a model aimed at the most the configuration of services. vulnerable homeless individuals (i.e. those with mental illness; multiple disabilities or health Number of Housing First units per project conditions, frequently with co-occurring or long • Some communities, such as Downtown standing addictions). In this model, people are first Emergency Services Center in Seattle housed and then problems and barriers to have dedicated the whole stock of successful housing are identified and plans are housing as Housing First with homeless implemented to ensure tenancy and to address a people with addictions and/or mental person’s goals for healthier living and success in the illness. community. http://www.desc.org/programs.html • Other communities such as Denver only The major components of a housing first includei: incorporate 15% of the housing units 1. Direct, or nearly direct placement in housing for Housing First for homeless people with the program’s commitment to ensure with addictions. This is intended to that the participant is housed permanently decrease the amount of stigma associated 2. Tenancy is not connected to use of with being known as a resident with supportive services, although robust services are readily available and offered frequently ‘special needs.’ through assertive engagement; www.coloradocoalition.org

Alaska Mental Health Trust Authority • 3745 Community Park Loop , Suite 200 • Anchorage AK 99508 • www.mhtrust.org • Some communities utilize “scattered Frequently asked Questions site” private rentals such as Question: Where should a Housing First New York City’s Pathways to Housing program be located? Should a program be program. www.pathwaystohousing.org located in the same area as the one where the • Other communities such as Portland’s person was homeless or where there are other Central City Concern utilize the floors of people drinking? a building. Answer: if the resident desires to live in a http://www.centralcityconcern.org/ location, then the Housing First program would attempt to locate them in that place. Many Locations of programs range from downtown programs are in the same location where the city business areas, inner city neighborhoods people were formerly homeless. In Seattle, the struggling with crime and other issues to more largest program for the homeless people with suburban areas. A concern expressed about the addictions is located approximately 3 blocks Housing First programs are that people need to from the sleep off center. be relocated out of the area where other people with addictions hang out or to a more residential Question: Will placing a Housing First program setting. Once again, the Housing First model in a neighborhood that already has homeless relies on where the resident wishes to live and if people located within the boundaries increase the that is near the places they were homeless, then number of people hanging around on the streets? this is where the housing will be located. Answer: Other communities have found that • 379 units exist in Seattle’s central Housing First programs decrease the number of tourism and business area near Pike people on the street and the demand for Street Market community resources to respond to individuals • In Denver, there are216 units located just on the street. In some cases, the need for other east the 16th Street mall, a major business services has dramatically decreased as in Seattle and retail location for the city. where the King County Recovery Center sleep • Denver has 283 housing units located in off facility saw a more than 70% reduction in the the neighborhoods of Colfax and Capital people requiring this service. See DESC Hill which are neighborhoods that have materials and evaluation for more information on long struggled with crime and substance these and other reductions use and abuse issues. Question: If a building is not designed for this Type of building purpose, then will a Housing First program be Like location, there is no one “building” that successful? works best for a Housing First program. One Answer: A solid structure with individual units, question is whether a Housing First program clear line of site for viewing activities and some requires new construction vs remodeling existing gathering areas are necessities for a successful facilities. Each community handles this in an Housing First program. Programs have been individualized way. Hotels are the most successful in remodeled buildings and in new common remodeled facility and there are other construction. New construction can be examples of old schools and a YMCA in Denver preferable in order to allow for more common that have been reprogrammed to provide spaces and social service components, but the Housing First units. current US economy and local budgets may • Portland’s Central City Concern has 114 allow less new construction than in previous units remodeled from previous hotels years.

• Seattle’s, DESC has 254 units remodeled i Pearson, C, Montgomery, A.E., Locke, G (2009) Housing from old hotels (approx 1/3 of the Stability Among Homeless Individuals with Serious housing unit total for this organization) Mental Illness Participating in Housing First Programs, • Denver has remodeled an old YMCA to Journal of Community Psychology 37(3) 404-417. house 216 units of Housing First homes. Online:WileyInterScience www.interscience.wiley.com Alaska Mental Health Trust Authority • 3745 Community Park Loop , Suite 200 • Anchorage AK 99508 • www.mhtrust.org