Feasibility of Housing for Veterans in Maynard - June, 2014
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Feasibility of Housing for Veterans
in Maynard
June, 2014
Feasibility of Veteran Housing, Town of Maynard
Dan Cahill and Associates
Table of Contents
I. Introduction ......................................................................... 1
II. Demand for Veterans Housing............................................ 2
III. Public-Private Partnerships.............................................. 10
IV. Funding Sources .............................................................. 18
V. Assets and Site Options .................................................... 25
VI. Eligibility .......................................................................... 36
VII. Summary and Conclusion ............................................... 38
Feasibility of Veterans’ Housing, Town of Maynard Page 1
Dan Cahill and Associates
I. Introduction
Maynard supports its veterans.
Parades celebrate their
contribution. Annual placement
of individual memorial flags
commemorates the “some who
gave all.” The Town’s budget,
through the office of the Veterans’
Service Officer, provides support
for individual veterans and their
families who have encountered
financial difficulty. 1
Over the past 20 months, Maynard
officials have realized that the
Town may have some assets, in the form of real estate, that could be dedicated for veterans’
housing. In May of 2014, the Town retained Dan Cahill and Associates (DCA) to study the
feasibility of this type of project. This report is the result of work undertaken in the spring of
2014 by DCA principals Dan Cahill and Kathleen Perreault. The four part focus of this veterans’
housing feasibility analysis includes the demand for veterans’ housing, sites available in
Maynard, potential partners to develop and manage the housing, and resources available for
funding the housing.
Mr. Cahill and Ms. Perreault wish to thank the following for their help with this project: Mr.
Andrew Scribner-MacLean, Assistant Town Administrator; Mr. Wayne Stanley, Veterans’ Service
Officer; Mr. Richard Asmann, Building Commissioner; Mr. Robert Larkin, Executive Director of
the Maynard Housing Authority; and Marianne Dee, Assessor’s Clerk.
1
Photo to the right credited to Maynard.wickedlocal.com
Feasibility of Veterans’ Housing, Town of Maynard Page 2
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II. Demand for Veterans’ Housing
Overview
The first step to understand the need for veterans’ housing was to identify the characteristics of
the veteran population. The following section reports data on veterans in Maynard, the state
and the region. The region was defined by the communities within the infrastructure
boundaries of Routes 495 to the west, 95 to the east, 90 to the south and 3 to the north. A
variety of information from different sources was utilized to understand the characteristics of
veterans in the Town, region and state. Key data sources include the U.S. Census (specifically
the most current American Community Survey), the Massachusetts Office of Labor and
Workforce Development, the U.S. Joint Economic Committee, the U.S. Department of Veterans
Affairs and the U.S. Department of Housing and Urban Development. Different data collection
periods are reflected in this diversity of sources; these are noted within the narrative.
Age and Period of Service Age of Maynard Veterans
In Maynard, veterans comprise 9 percent (681) of the
18-34 35-54
population. Veterans in the region and the state
years, 0% years,
account for 8 percent of the population. 12%
In Maynard, 87 percent (597) of veterans are 55 and
older. Although the U.S. Census' 2012 American
Community Survey estimate indicates that there are
no veterans under the age of 34 in the Town, local 65+ years, 55-64
54% years,
records show several veterans in this age category. 33%
Both the region and the state also have a high
percentage of veterans in the 55+ age cohort, 78
percent and 74 percent respectively. However, there
are more veterans in the 35-54 age group in both the
region and in the state than in Maynard.
Age of Veterans in Maynard, the Region, and the State
MAYNARD REGION* MASSACHUSETTS
18-34 0 0% 352 3% 24,018 6%
35-54 84 12% 2,396 19% 81,943 20%
55-64 227 33% 2,412 20% 91,438 23%
65+ 370 54% 7,130 58% 203,475 51%
TOTAL 681 12,290 400,874
*Acton, Bedford, Boxborough, Carlisle, Concord, Lincoln, Stow, Sudbury, Wayland, Weston, Southborough, Hudson,
Littleton, Marlboro, Maynard
Source: American Community Survey (2012 5-year) Table B21001
The high percentage of veterans in the 55+ age group correlates to a high percentage of
veterans that served during the time of the Vietnam and Korean Wars. These percentages are
highlighted in the table below. A total of 14 percent of Maynard veterans, 14 percent of the
Feasibility of Veterans’ Housing, Town of Maynard Page 3
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region's veterans, and 15 percent of the state's veterans served during the time of the Gulf
War. A smaller portion of those veterans that served during the Gulf War were or are involved
in recent conflicts. Approximately 5 percent of Maynard veterans, 5 percent of the region's
veterans and 7 percent of the state's veterans served during the time of the Gulf War, after
9/2001.
Period of Service for Veterans in Maynard, the Region, and the State
MAYNARD REGION MA
Gulf War (9/2001 or later), no Gulf War (8/1990 to 8/2001), no
3% 3% 5%
Vietnam Era
Gulf War (9/2001 or later) and Gulf War (8/1990 to 8/2001), no
4% 2% 2%
Vietnam Era
Gulf War (8/1990 to 8/2001), no Vietnam Era 5% 8% 7%
Gulf War (8/1990 to 8/2001) and Vietnam Era 2% 1% 1%
Vietnam Era, no Korean War, no World War II 34% 30% 32%
Vietnam Era and Korean War, no World War II 2% 0% 1%
Vietnam Era and Korean War and World War II 0% 0% 0%
Korean War, no Vietnam Era, no World War II 21% 14% 13%
Korean War and World War II, no Vietnam Era 5% 1% 1%
World War II, no Korean War, no Vietnam Era 6% 15% 12%
Between Gulf War and Vietnam Era only 0% 10% 13%
Between Vietnam Era and Korean War only 18% 15% 13%
Between Korean War and World War II only 0% 1% 1%
Source: American Community Survey (2012 5-year) Table B21002
Unemployment Rate and Employment Opportunities Throughout the Region
Veterans are statistically more likely to be unemployed than non-veterans, and post-9/11
veterans have a greater unemployment rate than the veteran population at large. Although the
U.S. Census reports on the unemployment rate of veterans for Maynard and the region, this
information is several years old. The U.S. Congress Joint Economic Committee issues a periodic
report on unemployment in the state and nation. It is clear from the Committee's May, 2014
report that the unemployment rate of Massachusetts veterans (7.3%) is higher than that of the
entire population, which was reported as 5.6% in May of 2014, by the Bureau of Labor and
Statistics. The rate of unemployment for Massachusetts veterans is also higher than the
unemployment rate for the national population of veterans (6.6%).
Unemployment Rate of Veterans in Massachusetts and the United States
MASSACHUSETTS UNITED STATES
All Veterans' Unemployment Rate 7.3% 6.6%
Post-9/11 Veterans’ Unemployment Rate 11.9% 9.0%
Source: U.S. Congress Joint Economic Committee, May 2014; Economic Snapshot: Massachusetts
http://www.jec.senate.gov/public//index.cfm?a=Files.Serve&File_id=d60e8d52-de76-4e8d-b4a5-
ab24f72611d4
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According to the American Community Survey, in Massachusetts nearly 6 percent of veterans
live in poverty. The region has a lower rate of poverty for veterans (3%) and the percentage of
Maynard veterans living in poverty is extremely small (0.3%). It should be noted that local
records indicate that the poverty rate of veterans is closer to 0.7%.
Poverty Rate of Veterans in Maynard, the Region and the State
MAYNARD 2 0.3%
REGION 416 3.0%
MASSACHUSETTS 22,487 6.0%
Source: American Community Survey (2012 5-year) Table C21007
Currently, the professional business service industry accounts for the greatest number of
employees and highest average wage in the Town. Maynard's local economy is currently going
through a transition. The Assabet Woolen Mill which was redeveloped into the Clock Tower
Place previously housed Digital Equipment Corporation (DEC) until the late 90s. Economic
development efforts continue for industrial and retail space throughout the Town. For instance,
there is a developable parcel located along Parker Street that the Town has considered for
large-scale commercial development.
Employment Opportunities in Maynard
AVERAGE
INDUSTRY ESTABLISHMENTS EMPLOYEES WEEKLY WAGE
Construction 29 130 $1,167
Manufacturing 7 136 $1,785
Trade, Transportation, Utilities 54 345 $788
Financial Activities 22 154 $966
Professional and Business Services 85 783 $1,886
Education and Health Services 25 441 $896
Leisure and Hospitality 30 626 $439
Public Administration 6 142 $1,612
Source: Massachusetts Executive Office of Labor and Workforce Development 2013, 3rd Quarter
http://lmi2.detma.org/lmi/lmi_es_a.asp
The Fitchburg/South Acton line of the MBTA commuter rail stops in the neighboring town of
Acton. The rail line transports commuters west into Fitchburg and east into Boston. Stops along
the commuter rail include: Fitchburg, Leominster, Shirley, Ayer, Littleton, Acton, Concord,
Lincoln, Weston, Waltham, Belmont, Cambridge and Boston. Transportation to these
communities opens up a diversity of job opportunities to veterans living in Maynard.
Additionally, the table below illustrates that job seekers may be more likely to obtain a higher
salary if they find employment outside of Maynard.
Feasibility of Veterans’ Housing, Town of Maynard Page 5 Dan Cahill and Associates Map of South Acton/Fitchburg Commuter Rail Source: Massachusetts Bay Transportation Authority Employment Opportunities in Communities Along Commuter Rail INDUSTRY ESTABLISHMENTS EMPLOYEES WEEKLY WAGE Natural Resources and Mining 31 198 $194-$1,111 Construction 1,543 18,242 $933-$1,670 Manufacturing 744 20,779 $739-$2,545 Trade, Transportation, Utilities 5,548 96,827 $567-$1,467 Information 960 24,074 $547-$2,559 Financial Activities 3,795 87,924 $797-$2,429 Professional and Business Services 8,623 172,466 $759-$2,533 Education and Health Services 6,299 247,477 $686-$1,630 Leisure and Hospitality 3,754 87,423 $227-$706 Public Administration 586 38,592 $1,089-$1,620 Source: Massachusetts Executive Office of Labor and Workforce Development 2013, 3rd Quarter http://lmi2.detma.org/lmi/lmi_es_a.asp Homelessness In 2013, the latest data available, the U.S. Department of Housing and Urban Development's Point-In-Time count conducted for the state of Massachusetts documented a total of 1,253 homeless veterans, 1,204 of which were sheltered and 49 of which were unsheltered. In terms of the sheltered homeless veterans, these individuals may have been sheltered in emergency, transitional or permanent supportive housing. Medical Needs of Veterans Information pertaining to the medical needs of veterans was difficult to obtain. The U.S. Department of Veterans Affairs did report that in FY2013 the agency treated 84,345 unique veteran patients in Massachusetts and 14,787 in Middlesex County, where both Maynard and the Bedford VA Medical Center are located.
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FY13 Summary of U.S. Department of VA Expenditures
MIDDLESEX MASSACHUSETTS
Veteran Population 69,788 374,809
Total Expenditures $476,995 $2,339,067
Compensation & Pension $176,646 $985,894
Education, Vocational,
Rehabilitation/ $43,005 $192,975
Employment
General Operating Expenses $4,298 $32,546
Insurance & Indemnities $10,930 $41,235
Medical Care $242,117 $1,098,412
Unique Patients 14,787 84,345
Expenditures in $000s; Source: U.S. Department of VA
A portion of the benefits that disabled veterans are eligible to receive from the Department of
Veterans Affairs is based on their service-connected disability rating. The percentage of
veterans that have a disability rating in Maynard, the region and Massachusetts is
approximately the same, 14% (14% in Maynard, 13% in the region and 14% in Massachusetts).
The highest disability rating category (70 percent or higher) was given to 20 percent of qualified
veterans in Maynard, 27 percent of qualified veterans in the region, and 20 percent of qualified
veterans in the state.
Service Connected Disability
MAYNARD REGION MASSACHUSETTS
Total 92 14% 1,581 13% 57,460 14%
0 percent 6 7% 145 9% 5,882 10%
10 or 20 percent 52 57% 576 36% 22,918 40%
30 or 40 percent 0 0% 192 12% 8,241 14%
50 or 60 percent 10 11% 103 7% 4,197 7%
70 percent or higher 24 26% 431 27% 11,273 20%
Not Reported 0 0% 134 8% 4,949 9%
Source: American Community Survey (2012 5-year) Table B21100
The U.S. Department of Veterans Affairs is conducting an on-going study on the number of
Operation Enduring Freedom/Operation Iraqi Freedom/Operation New Dawn (OEF/OIF/OND)
veterans that are being treated for Post Traumatic Stress Disorder (PTSD) at VA Medical Centers
and Community Based Outpatient Clinics. Since FY2002 1,663 OEF/OIF/OND veterans were
treated for PTSD in the Bedford VA and its associated centers, 298 of these veterans were
treated in the last fiscal year (FY13) and 68 in the last quarter.Feasibility of Veterans’ Housing, Town of Maynard Page 7
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OEF/OIF/OND Veterans with PTSD Utilizing Bedford VAMC Facilities
during FY 2002- FY 2013
Inpatients- Inpatients- Outpatients- Outpatients-Any Total Patients
Primary2 Any3 Primary Primary
111 345 1,343 1,520 1,355
Total Patients- Vet Centers- Vet Centers- Vet Centers-Others Total4
Any PTSD Outreach
1,553 226 131 348 1,663
http://www.publichealth.va.gov/epidemiology/reports/oefoifond/ptsd/index.asp
2 The number for “Primary” indicates the total number of unique Veterans whose primary reason for the
inpatient or outpatient visit was for treatment or evaluation of PTSD.
3 The number for “Any” indicates the total number of unique Veterans with PTSD whether or not the primary
reasons for the inpatient or outpatient visit was for treatment or evaluation of PTSD.
4 The number for “Grand Total” (n= 326,224) indicates the sum of “Any Total Patients” (n=299,561) and “Vet
Center PTSD” (n=79,479) after excluding duplicates (n=52,816).
Transportation
In terms of the transportation needs of the veteran population Maynard would be serving, data
on the utilization rates of the Bedford VAMC's shuttle service was reviewed by the consultants.
The shuttle service runs six lines (Jamaica Plain, Lynn, Haverhill, Gloucester, Lowell, Fitchburg)
each making one trip to the Bedford VAMC per day. Every trip on each line are nearly always at
capacity. Approximately 51 veterans use the shuttle service each day, and an average of 255
veterans are transported each week. Additionally, the Disabled Veterans of America also
provides transportation to veterans being treated at the Bedford VA; however, these utilization
rates were unavailable.
Officials from the Town of Maynard are working with area wide communities to create a
transportation network that could also serve veterans. One element of transportation is the
Town owned van, which serves the elderly population. The Council on Aging has administered
this program, typically taking a senior to an appointment for some form of medical treatment
or consultation. Maynard has started coordinating that service with other nearby towns using a
common dispatch service, Cross Town Connect. The group planning this service is also
considering ways to extend bus service to businesses and other users. Veterans could be
included for special medical or even workplace transportation.
Future State-wide Projections
The Department of Veterans Affairs collaborated with the Office of the Actuary (housed under
the Department of Defense) to develop future projections of the veteran population. The
model can be considered one way to understand future needs of the veteran population in the
state. These projections are available by state and county. According to the model, the veteran
population is expected to decrease from 2014 to 2030, in both the state and Middlesex County.
This decrease is substantial in each area; approximately a 42 percent change in the state and a
48 percent change in Middlesex County. Within the age groups, this decrease is the most
significant in the 55+ age group of veterans.Feasibility of Veterans’ Housing, Town of Maynard Page 8
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Projected Veteran Population in Middlesex County and MA
400,000
350,000 361,451
300,000 291,522
250,000 246,782
200,000 210,598
150,000
100,000 66,820
51,463 41,926
50,000 34,531
0
2014 2020 2025 2030
MA Middlesex County
Source: Veteran Population Projection Model - Department of Veterans Affairs (VA)
Projected MA Veteran Population by Age
250,000
200,000
2014
150,000
2020
100,000 2025
2030
50,000
0
20 < 20-34 35-44 45-54 55-64 65+
Source: Veteran Population Projection Model - Department of Veterans Affairs (VA)Feasibility of Veterans’ Housing, Town of Maynard Page 9
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Maynard's Existing Affordable Housing Stock
According to the most current version (April 30, 2013) of the Massachusetts Department of
Housing and Community Development's Subsidized Housing Inventory (SHI), Maynard has 363
units of housing affordable to households earning 80% of the Area Median Income.
2010 Census Year Total Development SHI Units Percentage
Round Housing Units Units
4,430 363 363 8.2%
The Maynard Housing Authority (MHA) owns and operates 144 housing units; 112 of these
units are state funded and 32 are federally funded.
Elderly/Disability Units Family Units
One-bedroom Two-bedrooms Three-bedrooms Four-bedrooms
112 16 14 2
The Director of the MHA estimates that veterans occupy less than 10 percent of the 112 elderly
units and units set aside for people with disabilities (there is no veteran preference for the
family units). The MHA has a wait list of approximately 80 households for the (112) elderly
units/units for people with disabilities and 400 households for the (32) family units. Priority is
given to minorities, households with a local preference (living, working in Maynard) and local
veterans. There are 1 or 2 households on the waiting list that have self-identified as veterans.
Additionally, there are 176 affordable units in three developments in Maynard.
Development Units Type
Great Road Apartments 6 Elderly/Disabled
Old Mill Glen 50 Family
Summer Hill Glen 120 ElderlyFeasibility of Veterans’ Housing, Town of Maynard Page 10 Dan Cahill and Associates III. Public-Private Partnerships The consultant team completed a selective survey of veterans’ housing providers throughout the region to better understand the housing models in place. The survey revealed that non- profit providers typically pair housing with supportive services, either on-site or by coordinating transportation. This housing provides the maximum benefit to veteran clients in need of such services. Given Maynard's limited municipal resources to devote to the management of housing for a special needs population, the Town should strongly consider partnering with a non-profit with expertise and a proven track record providing housing and services to veterans. This section reviews potential non-profit partners and for-profit developers, who have experience in this area. The Veterans Northeast Outreach Center The Veterans Northeast Outreach Center (VNOC) is a veterans’ housing and service agency with its headquarters in Haverhill and an outreach office in Marlboro. The VNOC provides a full array of veterans’ services with social service case managers and housing staff. One focus for the VNOC is homeless veterans. The VNOC also manages housing for other housing providers and developers. For instance, the VNOC manages the 60 single room occupancy (SRO) units at the Bedford VA Medical Center and housing for the Chelmsford Housing Authority. The VNOC originally expanded its work into housing development in Haverhill with 22 units of transitional housing. The VNOC now also has a veterans’ campus in Haverhill with transitional and permanent housing. The housing is complemented by a dining hall and recreational center where workforce training is held. The VNOC housing is supported by a wide variety of funding sources including: HOME, McKinney Vento, private financing, and Community Preservation Act funds. In the array of development efforts undertaken by non-profits, the VNOC stands out with its flexibility in working with local communities. These efforts include close coordination with the communities’ Veterans’ Service Officer (VSO). One example of this municipal partnership is the Town of Merrimack where the VNOC developed and manages 5 units for veterans. Currently, the VNOC is collaborating with the Town of North Andover to develop a multi-family structure that will include three rental units. The early stage of the development process is worth noting: VNOC initially reviewed a number of sites and considered publically owned property as well as property in different stages of foreclosure. The property that was selected and is currently under development was once owned by the U.S. Housing and Urban Development Department (HUD). North Andover, a town with a population of 28,000, has a small committee that provided local support and investigated programmatic and site options for veterans' housing. Although the Veterans’ Service Officer is the primary sponsor in the Town, the town manager is also involved in the project. In addition to the ‘short sale,’ the project's financing plan depended on HOME funding from the North Shore HOME Consortium and local Community Preservation Act funds. The VNOC will own the property. The project was approved by Town Meeting. The occupancy plan gives preference to local veterans who can live independently. The rent level will be set according to the ability to pay, while meeting the HOME income limits. Any net
Feasibility of Veterans’ Housing, Town of Maynard Page 11
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income will be returned to the veterans’ programs in the town. Homeownership counseling will
be available to tenants. The units are expected to come on line before the end of 2014.
Veteran Homestead
Veteran Homestead Inc., is an independent, non-profit housing provider for U.S. Armed
Services veterans, based in Fitchburg, Massachusetts. Veteran Homestead has become well
known for identifying unmet housing and supportive service needs among the veteran
population and for designing programs to effectively address these needs. Under the direction
of CEO Leslie Lightfoot, Veteran Homestead owns and operates six facilities in Massachusetts,
New Hampshire and Puerto Rico. These include:
• The Northeast Veteran Training and Rehabilitation Center in Gardner, Massachusetts is a
specialized center for veterans returning from Iraq and Afghanistan wars (capacity: 20
veterans/families).
• The Veteran Homestead Hospice located in Fitchburg, Massachusetts is the only privately
run hospice in the country for veterans (capacity: 12 veterans).
• The Veteran Victory Farm located in Fitzwilliam, New Hampshire is a working organic farm
for veterans with substance abuse issues and mild traumatic brain injuries. Veteran Victory
Farm is the first of its kind in the United States (capacity: 10-12 veterans).
• The Hero Homestead located in Leominster, Massachusetts is a facility for elderly, homeless
veterans (capacity: 15).
• The Armistice Homestead located in Leominster, Massachusetts is a facility focusing on
substance abuse care for homeless veterans (capacity: 15).
• La Hacienda de Veteranos in Caguas, Puerto Rico provides housing and services for
homeless veterans (capacity: 12).
The Northeast Veteran Training and Rehabilitation Center (NVTRC) was opened by Veteran
Homestead in Gardner, Massachusetts in 2010. The NVTRC serves the subpopulation of
veterans from recent conflicts (Operation Enduring Freedom/Operation New Dawn, Operation
Iraqi Freedom), in particular veterans with a Traumatic Brain Injury (TBI) and/or Post Traumatic
Stress Disorder (PTSD). The land for the facility was donated by Mount Wachusett Community
College. A total of $8
million dollars in
grants, donations,
state and federal
funds were used to
build the center.
The green building
practices that were
implemented in the
construction of
NVTRC earned it a
gold level of
certification fromFeasibility of Veterans’ Housing, Town of Maynard Page 12 Dan Cahill and Associates the Leadership in Energy & Environmental Design (LEED). Some of these green design elements have decreased the maintenance costs associated with the NVTRC. For example, the facility and all of the homes are heated and cooled by geothermal pumps, while solar panels on the roofs generate electricity which eliminates electric bills. The housing portion of the center includes a total of 20 2-bedroom units, each 1,200 square feet. There is also a centralized building which houses staff offices, recreational space, a physical therapy room, and a salt water therapy pool. The housing and central building are designed to be accessible for people with disabilities In addition, the buildings incorporate design features that specifically benefit those with traumatic brain injuries, such as curved walls and a space for training therapy dogs. The NVTRC program provides veterans with housing appropriate to their physical needs while supporting them with case management, counseling, vocation, education, and transportation services. Although the program is structured as a two year program, with the goal of transitioning the veterans into independent living, the housing is classified as permanent. This means that residents are free to stay indefinitely as long as they remain committed to their personal and program goals. In the four years that the program has been in operation, there has been a small amount of turnover (four veterans). When veterans enroll in the NVTRC they must commit to live an alcohol, drug-free lifestyle during the two year program. In terms of services, residents are eligible to take courses at Mount Wachusett Community College at no cost. Transportation to and from medical appointments is coordinated by Veteran Homestead. On-site case management and counseling is provided by a licensed social worker and a licensed therapist. The case manager and social worker are part of Veteran Homestead's 17-member staff. This staff supports all six Veteran Homestead facilities located through Massachusetts, New Hampshire and Puerto Rico. As the NVTRC is the first of its kind, veterans from across the country apply to the program. Montachusett Veterans Outreach Center The Montachusett Veterans Outreach Center (MVOC), located in Gardner, is a housing and social service provider for veterans in the north central region of Massachusetts. MVOC provides veterans' benefit resource assistance, nutritional assistance, counseling, medical transportation, outreach and job training. Additionally, MVOC owns and operates transitional housing and low-income permanent housing units. A total of 27 SRO units in two developments serve as temporary housing for veterans in recovery. Eligible veterans are able to live in these units for up to two years. Permanent housing is available in the form of 15 studio apartments and two 2-bedroom apartments. These units are reserved for low-income veterans who have committed to a substance free lifestyle. The MVOC also has an outreach center in Winchendon. Veterans Inc. Veterans (Vets) Inc. is a private, non-profit organization that has served veterans, service members and their families in New England since 1991. It is supported primarily by grants from the U.S. Department of Veterans Affairs (VA), U.S. Department of Labor, U.S. Department of Housing & Urban Development, Massachusetts Department of Veterans’ Services, and the
Feasibility of Veterans’ Housing, Town of Maynard Page 13 Dan Cahill and Associates Massachusetts Department of Housing and Community Development. Supportive Services for Veterans’ Families (SSVF) funds are included in the grant monies Vets Inc. receives from the VA. Emergency, transitional and permanent supportive housing is provided by Vets Inc. With headquarters in Worcester, Vets Inc. offers housing units locally as well as throughout the state (Ayer/Fort Devens, Shrewsbury), and in the states of Connecticut, Vermont and Maine. These housing sites range from small scale tenement units to larger formerly vacant buildings that were rehabilitated into housing. Vets Inc.'s preferred development model is 10 to 20 units. Supportive services are an essential component of the housing program and Vets Inc. treatment model. Vets Inc. has experience working within the political structure of different communities to forge partnerships and secure funding for the development of veterans' housing. Vets Inc. case managers oversee and coordinate services for each veteran client through an individualized treatment plan. A wide range of direct services are offered by Vets Inc.. In terms of health and wellness, clients have access to direct medical care provided by an onsite nurse, psychological counseling, substance abuse, Post-Traumatic Stress Disorder (PTSD) and diabetes support groups, health education and social enrichment activities. The vocational program at Vets Inc. includes assessments, job training, job search support and a follow-up regimen, once a veteran obtains employment, to facilitate job retention. Other basic services include: benefits assistance, nutrition and clothing support, legal assistance and transportation. Vets Inc. is the first provider in Massachusetts to develop a residential program for women veterans and their dependent children. The program aims to assist female veterans to overcome the obstacles resulting from their military service which are combined with the challenges of single parenthood. Vets Inc. opened the Little Patriots Early Learning Center, which provides parenting support and childcare, to address the housing, outreach, employment, training and child care services needs of Vets Inc. clients. After residents successfully complete the program and move out of Vets Inc. housing, they are encouraged to maintain contact with their case manager in order to continue to access the services they need to transition successfully to living independently. Soldier On Soldier On is a Massachusetts based non-profit organization that focuses on providing housing and services to homeless veterans. The organization's focus and model came to light when Jack Downing, President and CEO of Soldier On, recognized that on one end, homeless veterans were receiving specialized medical services from the Department of Veteran Affairs while on the other end, they were receiving treatment for homelessness from more broad based homeless organizations. He believed that in order to succeed, the unique characteristics of veterans called for a specialized, continuum of care approach. Soldier On developed and manages the Gordon H. Mansfield Veterans Community (the Community), a 39-unit housing cooperative in Pittsfield, Massachusetts designed specifically for veterans. The core components of the program behind the Community are its service orientation and peer-to-peer model. Soldier On employs a full time psychologist who focuses
Feasibility of Veterans’ Housing, Town of Maynard Page 14 Dan Cahill and Associates on the chronically mentally ill and veterans with dual diagnosis. Each veteran is also assigned a case manager to assist in obtaining necessary services and developing an individualized service plan that addresses the veterans’ needs and goals. An employment program offered on-site includes financial awareness classes, specialized services for incarcerated veterans, financial assistance for training and education, resume building, interview preparation and job fairs. If a service is needed by a veteran but not available on-site, that service is coordinated by the veteran's case manager and transportation is provided for the veteran. A wide variety of treatment groups are also offered as part of the Community, ranging from Alcoholics Anonymous and Narcotics Anonymous to computer technology and current events. An average of 15 groups are held each month, the majority (14) of which are peer-led groups. The residents of the community are also empowered to work through resident management teams. These teams are responsible for rules, maintenance, transportation, treatment advice, intakes and discharges. A total of 10 of the 39 units in the Community are market rate and the remaining 29 are affordable to 60% of area median income (AMI). All of the residents are veterans and their average age is 55.5. Residents who live in the affordable units are usually receiving benefits from the Department of Veterans Affairs and often also from Social Security. Approximately half of the current residents work part time jobs. Residents often apply to the program after living in one of Soldier's On's shelters, and most come from surrounding areas in Massachusetts. The cooperative structure of the community means that residents each have ownership in the development, and in turn split the residual property income. The Community was built in 2010 and the construction cost ($6 million) was supported by grants and tax credits. The project includes sustainable design features, such as photovoltaic cells, that help control energy costs for residents. In addition to the Community, Soldier On operates a 165-bed shelter leased from the Veterans Affairs Medical Center in Leeds, Massachusetts and a 71-bed transitional living facility in Pittsfield, Massachusetts. Part of the 165-bed shelter in Leeds includes a program for women's veterans. Soldier On's primary sources of income and support include: the Veterans Affairs Grant and Per Diem Program, Supportive Services for Veterans Families, Department of Labor, program income, Massachusetts Department of Veterans' Services, U.S. Department of Housing and Urban Development (through the City of Northampton), and private contributions.
Feasibility of Veterans’ Housing, Town of Maynard Page 15 Dan Cahill and Associates Soldier On Development and Management Company Soldier On Development and Management Company is the development arm of the Soldier On non-profit. The success of the Gordon H. Mansfield Veterans Community, the first of its kind, has spurred Soldier On to partner with municipalities as well as the Department of Veterans Affairs to replicate the limited equity/cooperative housing model. Currently the company has on-going veterans’ housing projects in Northampton; Agawam, and Chicopee, Massachusetts as well as Albany, New York and Fort Monmouth, New Jersey. Soldier On's preferred project scale ranges, with a minimum of 50-100 units. Typically this scale enables the project to be self- sustaining, including the provision of services. Maynard Housing Authority The Maynard Housing Authority (MHA) owns and operates a portfolio of 144 housing units; 112 of these units are state funded and 32 are federally funded. The MHA has a waiting list of approximately 80 households for the (112) elderly units/units for people with disabilities and 400 households for the (32) family units. Priority is given to minorities, local preference (living, working in Maynard) and local veterans. The MHA has a successful track record in managing and maintaining these units, while challenged by funding reductions on the state and federal level. The MHA development management capacity and existing presence in the community makes the entity a strong potential partner for the Town to consider for the development of veterans' housing. Choice Inc./Chelmsford Housing Authority Choice Inc. is a non-profit development arm started by the staff and the board of commissioners of the Chelmsford Housing Authority 10 years ago. Choice, Inc. specializes in the development and management of veterans’ housing using HUD-VASH, Section 8, housing funding from DHCD, Community Preservation Act (CPA) funds and other sources of funding. Choice Inc. has two developments currently on line, eight efficiency units in Chelmsford and five family units in Westford. Choice Inc. will also break ground on a nine unit development in Harvard, Massachusetts in the spring of 2015. While recognizing the resources present at the VA medical facilities, staff at Choice Inc. also align other supportive services for veterans by working with outreach centers such as Vets, Inc. and the Northeast Outreach Center. New England Center for Homeless Veterans The New England Center for Homeless Veterans (NECHV) located in downtown Boston, Massachusetts is a nonprofit organization working with homeless men and women veterans. The downtown facility contains 59 affordable apartments, a separate 17 bed female veterans' dormitory, and over 300 transitional and emergency beds. Over 290 veterans reside at NECHV each night, and each year NECHV serves over 130,000 resident meals. The NECHV is dedicated to ending veteran homelessness by providing the tools and support to lead homeless veterans to independent living. The NECHV provides an array of supportive services for veterans who are homeless or who are facing the possible loss of housing. Housing support is provided for any individual who has served in the military, regardless of length of service or discharge status. NECHV provides emergency housing at 17 Court Street, Boston. A
Feasibility of Veterans’ Housing, Town of Maynard Page 16 Dan Cahill and Associates veteran can enter at any time night or day and have a place to sleep that night. Since this emergency housing is temporary, the NECHV staff will assist any veteran to enter as a transitional resident or to find the appropriate services. Transitional housing at NECHV includes case-managed supportive services for veterans. NECHV operates on an abstinence model, and veterans are required to adhere to an individual service plan throughout their stay at the NECHV. A separate unit is available for female veterans. Admission requirements are the same for women, and individual case managed services are available to address some of the unique challenges women might face, such as military sexual trauma. The NECHV provides permanent housing on site, housing placement assistance in the community, rental assistance, and supportive services for veterans who are placed in housing. Through the Supportive Services for Veteran Families (SSVF) program, families who are at risk of losing their housing, and veterans who do not qualify for admission to the transitional housing program, also receive services. NECHV has 59 Single Resident Occupant (SRO) apartments on site at 17 Court Street, Boston. These units, which are considered permanent housing, share living and bathroom facilities and are eligible for subsidy. A team of housing experts will also work with veterans to find affordable housing in the community. The goal of each housing placement is to provide a veteran with a home where he or she can successfully live independently. South Middlesex Opportunity Council (SMOC) The South Middlesex Opportunity Council (SMOC) is an umbrella organization, headquartered in Framingham, Massachusetts, that was founded in 1965 as a community action program. SMOC works to provide opportunities to enhance self-sufficiency and to create a safety net when short term and/or continuing support are needed. Over the past 45 years, the agency has evolved to meet a wider range of challenges faced by people living in the community. The five major areas of programming include: behavioral health services; economic development, education, employment and workforce development services; energy and financial assistance services; family and nutrition services; and comprehensive housing services. Starting in 1998, SMOC expanded its mission to address the housing and supportive service needs of homeless and at risk single adults in Middlesex, Worcester and Hampden Counties. SMOC provides a wide range of housing services including: emergency shelter, residential treatment for substance abuse, housing and programs for those suffering from HIV/AIDS, homeless prevention, and Section 8 Vouchers and HUD-VASH Vouchers. Over the past 8 years, SMOC has expanded to serve veterans with programs for permanent and transitional housing. For instance, SMOC has developed and manages an 18 unit single room occupancy (SRO) project in Framingham. One year ago, SMOC developed an 11 unit veterans’ SRO in Hardwick, which has a social service and transportation element designed for its residents. The development was funded by the U.S. Department of Agriculture. Some veterans have a preference for the small town, open country setting. For many veterans this type of location,
Feasibility of Veterans’ Housing, Town of Maynard Page 17 Dan Cahill and Associates like Hardwick, can be preferred because it removes them from an environment that leads to behavioral issues. Appleton Corporation Appleton Corporation is a subsidiary of O’Connell Construction, a for-profit company based in western Massachusetts. Appleton manages 1,600 units of housing in the eastern states. This housing is basically dedicated to seniors and is supported by the HUD Section 8 program. Appleton and O’Connell work with Soldier On, the non-profit developer/manager of veterans’ housing. These companies defer to Soldier On concerning their work in veterans’ housing because of the non-profit's programmatic and funding expertise in this area. Peabody Properties Peabody Properties is a for-profit housing development and management firm located in Braintree, Massachusetts. The company presently manages 130 different properties on the east coast. Peabody has developed two veterans' housing projects, one in New Jersey and one in Beverly, Massachusetts. The Beverly development has 32 units and is supported by the HUD- VASH program, HOME funds and tax credits. These units are studio apartments that rent for $950 a month. Tenant income is through Veterans Affairs’ programs, retirement income, income from employment and unemployment benefits. Women occupy 10 percent of the units. The VA medical facility in Bedford approves applicants for these units and Community Teamwork, Inc. in Lowell issues the housing certificates for residents. Case managers work at the development.
Feasibility of Veterans’ Housing, Town of Maynard Page 18 Dan Cahill and Associates IV. Funding Sources Maynard will need a variety of funding sources to support the development of housing for veterans in the Town. This section reviews a spectrum of funding opportunities: federal, state and local. Veterans’ Affairs Supportive Housing One possible funding source is the HUD-Veterans Affairs Supportive Housing (VASH) program. This housing program was started in 2008 to respond to the growing problem of homeless or near homeless veterans. The goal of the VASH program is to create permanent housing with supportive efforts and treatment for the homeless veterans or families of veterans. The program embraces the “housing first” concept. This model provides stability to the veteran and his/her family, with a housing solution followed by appropriate social services. The HUD VASH program combines the HUD Housing Choice Voucher rental assistance for homeless veterans with case manager and clinical services provided by the Department of Veterans Affairs, usually through a VA Medical Center (VAMC). The application process begins at a VAMC, where the applicant is approved according to their status. This is a “rolling application process,” so applicants are processed and then assigned a voucher when it becomes available. The veteran qualifies for the voucher in order of priority: first, veterans that have been chronically homeless (as defined by HUD: one year or longer or four or more instances of homelessness within the past three years) and second, all other homeless veterans. After certification by the VAMC, the veteran can then be issued a voucher by a public housing agency (PHA). There are currently a total of 1,697 VASH vouchers in Massachusetts. Although most VASH vouchers in the state are issued through the Massachusetts Department of Housing and Community Development (DHCD), a number of public housing authorities also issue vouchers. Generally speaking, the veteran then has 60 days to find a unit, which is inspected by the PHA issuing the voucher. Rent for the unit is set on a sliding scale depending on the veteran's income, and the PHA makes up the difference in the rent payment with the VASH funding. Typically, HUD issues a Notice of Availability of Funds (NOFA) for new HUD-VASH units. The current NOFA was issued in early February. The Bedford VAMC, the closest VAMC to Maynard, manages a VASH program. The Bedford VAMC's VASH program had 450 applicants between April of 2013 and May 2014. As of May 2, 2014, the VASH program at Bedford VAMC included a portfolio of 375 tenant based and 32 project based HUD-VASH units. Of the present clients in the VASH program at Bedford, a total of 75 percent have a mental health disorder and 95 percent have substance abuse issues.
Feasibility of Veterans’ Housing, Town of Maynard Page 19
Dan Cahill and Associates
HUD VASH Vouchers in Massachusetts 2008-2013
Public Housing Authority VA Medical Center/Community-Based Outpatient Clinic Local of high need Vouchers
Boston Housing Authority Boston VA Health Care System Boston 435
Boston VA Health Care System/Causeway Street Community-Based Outpatient
Cambridge Housing Authority Clinic Cambridge 140
New Bedford Housing Authority Providence VA Medical Center/New Bedford Community-Based Outpatient Clinic New Bedford 100
VA Central Western Massachusetts Health Care System (Northampton)/Worcester
Worcester Housing Authority Community-Based Outpatient Clinic Worcester 110
Edith Nourse Rogers Memorial (Bedford) VA Medical Center/Lynn Community-
Lynn Housing Authority Bedford
Based Outpatient Clinic 15
Northampton Housing Authority VA Central Western Massachusetts Health Care System (Northampton) Northampton 180
VA Central Western Massachusetts Health Care System (Northampton Housing
Northampton Housing Authority Authority)/Springfield Community-Based Outpatient Clinic Springfield 50
Braintree Housing Authority Boston VA Health Care System/Quincy Community-Based Outpatient Clinic Quincy 85
Edith Nourse Rogers Memorial (Bedford)VA Medical Center/Lowell Community-
Chelmsford Housing Authority Based Outpatient Clinic Lowell 110
Department of Housing & Edith Nourse Rogers Memorial (Bedford) VA Medical Center/Lowell Community-
Community Development Based Outpatient Clinic Lowell 40
Department of Housing &
Edith Nourse Rogers Memorial (Bedford) VA Medical Center
Community Development Bedford 142
Department of Housing & Edith Nourse Rogers Memorial (Bedford) VA Medical Center/Haverhill Community-
Community Development Based Outpatient Clinic Haverhill 100
Department of Housing & VA Central Western Massachusetts Health Care System (Northampton)/Pittsfield
Community Development Community-Based Outpatient Clinic Pittsfield 85
Department of Housing &
Providence VA Medical Center/Hyannis Community-Based Outpatient Clinic
Community Development Hyannis 25
Department of Housing & VA Central Western Massachusetts Health Care System (Northampton)/Worcester
Worcester
Community Development Community-Based Outpatient Clinic 25
Department of Housing &
Boston VA Health Care System/Brockton Campus Brockton
Community Development 15
Department of Housing &
Boston VA Health Care System/Quincy Community-Based Outpatient Clinic Quincy
Community Development 40Feasibility of Veterans’ Housing, Town of Maynard Page 20 Dan Cahill and Associates Support for Veterans in Massachusetts Through “Chapter 115” Massachusetts provides income support for very-low income veterans, whose veterans status is defined by state law. This program is part of a historic commitment by the state to veterans. The income support (authorized by Massachusetts General Law Chapter 115) is extended to veterans with a monthly income of less than $1,945 for an individual and $2,621 for a couple. (Figures are current for 2014). Additional family members would change these amounts. Assistance depends on individual circumstances. The program also has asset limits. This income benefit is provided to help meet the cost of shelter, sustenance, and medical expenses. The cost of the Chapter 115 program is supported by the state (75%) and the locality (25%). Applications for Chapter 115 assistance are available through the Maynard Veterans’ Service Officer (VSO). As required by state law, each municipality must provide a VSO. The VSO for Maynard is Wayne Stanley, a veteran who has served in that position for two and a half years. Part of the VSO's role is to provide the Chapter 115 applicant with information about the program, to advise the veteran on completion of the application, and to send the application to the Massachusetts Department of Veterans’ Services. To determine the eligibility to receive such financial assistance, the VSO will ask the applicant to provide proof of certain expenses as well as income verification. Typically, the veterans receiving Chapter 115 assistance are unemployed. Unless restricted by a disability, the veteran is expected to undertake a job search and provide the VSO with proof on that search. Typically, Maynard extends these Chapter 115 benefits to a small number of veterans and family members of veterans. Grant and Per Diem Program The Grant and Per Diem Program (GPD) is administered by the Veterans Affairs. Currently, the VA issues periodic NOFAs for this program; however, anecdotal information indicates that this program is being phased out. As the title suggests, this program includes two separate categories of funds: grant and per diem (or a daily allowance for expenses). Grants can be used for acquisition, renovation, or construction of a building that will provide services for homeless veterans. Most grant awardees also request per diem funding to pay for supportive services for the veterans in the new housing. The Town of Maynard, the Maynard Housing Authority and non-profit organizations interested in providing veterans' housing in Maynard would be eligible to apply for GPD funding. In order to qualify for GPD funds, 75% of clients served in the program must be veterans. The grant portion of GPD funds may supply up to 65% of the cost to acquire, renovate, or construct facilities that will be used to provide supportive housing for homeless veterans, and to purchase vans in support of these programs. Grants may not be used for operational costs, including salaries. The GPD program does require a match, which must be cash or cash equivalents. Massachusetts Department of Housing and Community Development Funds Maynard is eligible for several different sources of funding through the Massachusetts Department of Housing and Community Development (DHCD) that can be used to support veterans' housing.
Feasibility of Veterans’ Housing, Town of Maynard Page 21 Dan Cahill and Associates Low Income Housing Tax Credit The federal Low Income Housing Tax Credit (LIHTC) is one of the largest sources of subsidy for affordable rental development. It is also one of the most complicated and tightly regulated as befits a program administered at the federal level by the Internal Revenue Service. The Massachusetts DHCD is the agency that is responsible for the allocation of the credit in the state. DHCD publishes a document called the Qualified Allocation Plan, which describes the type of projects that it intends to fund and the criteria for selecting projects. There are two types of LIHTC: the 4% and 9% credit. The 9% is the more valuable and is preferred for new construction or substantial rehabilitation projects, especially those that are 100% affordable; the 4% is a shallower subsidy that is most often used in connection with occupied expiring use projects or with projects that have a substantial market component with perhaps 20-25% affordable units. DHCD typically has one or two funding competitions a year. The process for obtaining the 9% credit starts with a pre-application to DHCD. The criteria in the pre-application is focused on readiness to proceed: does the developer have site control, zoning approvals, a clear understanding of any environmental hazards on the site and strong letters of interest from banks and tax credit equity syndicators? If accepted to apply, a more extensive application is prepared by the applicant. The full application process considers readiness to proceed, and it looks closely at the architectural plans, marketability of the units, the projected development, operating budgets and at the experience and track record of the development team. Typically less than 33% of applications are funded, and it is highly unusual for a proposal (even from highly experienced teams) to receive funding for its first application. Due to the complexity of the program, it is highly unusual for projects containing fewer than 20 affordable units to apply; the typical project is 30-75 units in size. Community Development Block Grant (CDBG) Program Maynard is eligible for CDBG funding, which originates from the U.S. Department of Housing and Urban Development. The Town has an existing balance of CDBG funds from a previous project. CDBG funds can be used for acquisition of property, clearance, homeownership assistance and property rehabilitation. Maynard could use CDBG funds to acquire property itself or through a non-profit subgrantee, to demolish buildings, to remove environmental contaminants, to perform rehabilitation on an existing building or to provide homeownership assistance. HUD grants the state CDBG funding and the state, through DHCD, issues grants to smaller, non- entitlement municipalities based on a competitive application process. According to available DHCD records, Maynard received CDBG funds in 2000 of $360,000, and in 2003 of $411,000. These CDBG funds were expended on qualified housing rehabilitation in Maynard. In 2005, DHCD issued a CDBG grant of $566,300 for housing rehabilitation and social services. These funds were expended on eligible activities according to the documentation submitted to DHCD
Feasibility of Veterans’ Housing, Town of Maynard Page 22 Dan Cahill and Associates by Maynard. The final expenditure for this 2005 CDBG allocation was in late 2007. In 2007, Maynard applied for additional funding but was unsuccessful. Maynard's current balance of $239,000 in CDBG funds is program income from the housing rehabilitation program and social service projects. This program income is subject to CDBG regulations for expenditure, including an initial definition of an eligible activity. According to staff at DHCD, Maynard officials indicated a desire to expend the funds for a planning activity; however, the 2005 grant award had to be amended in order to re-program the funds. Although Maynard officials initiated this amendment, it still needs to be completed. Instead of planning costs, the Town may also choose to submit an amendment for eligible costs associated with the development or rehabilitation of housing for veterans. Since Maynard submitted their last application for CDBG funding in 2007, DHCD has added a requirement for a designation of a “target area.” Any new application must indicate objectives for improvement in a target area and intended progress toward meeting those goals. In addition to submitting an amendment, Maynard could apply for additional CDBG funding if a target area is designated by the Town. The Economic Development Fund DHCD also instituted a funding program, the Economic Development Fund (EDF), to assist revitalization of downtown areas in non-entitlement communities. The EDF is a non- competitive program with a rolling application based on an invitation by DHCD after a review of an initial application. EDF offers assistance to communities focused on retaining and creating jobs for low and moderate-income people, strengthening the local tax base, and supporting revitalization efforts that enhance the quality of life in the community. EDF gives priority to assistance for physical improvements in support of economic development and job creation/retention. Historically, EDF has funded a range of economic and community development projects. The EDF program will support and encourage investor owner residential and mixed-use projects. The project must have a minimum of five units. The downtown is defined by the municipality by presenting evidence that the proposed project will be located in a commercial center. HOME Investment Partnership Program Funds and Housing Stabilization Funds HOME funds, which are allocated by HUD, are the largest federal block grant designed exclusively for the creation of affordable housing for low-income households. HOME funds are awarded to states (in Massachusetts, these HOME funds are administered by DHCD) and participating jurisdictions, which oftentimes take the form of consortia. Some examples of eligible uses of HOME funds include acquisition (including assistance to homebuyers), new construction and rehabilitation of affordable rental and homeowner housing, as well as tenant based rental assistance. These funds are relegated to transitional or permanent housing. Maynard could consider obtaining these funds on a formula basis by joining a consortium, such
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