TO: Mayor Edward “Bud” Caulfield

And

Members of the Lowell City Council

FROM: Bernard F. Lynch, City Manager

DATE: January 25, 2008

SUBJECT: COUNCIL MOTION OF JANUARY 22, 2008 BY ALAN KAZANJIAN

REQUEST THE MANAGER REPORT ON THE STATUS OF MIDDLESEX SHELTER AND NUMBER ETC. OF OTHER GROUP HOMES IN LOWELL

The apparent issues surrounding the Lowell Transitional Living Center (LTLC) on Middlesex Street are not new to the neighborhood. However, they are at the forefront of discussion largely due to both public and private redevelopment efforts in the neighborhood, such as the redevelopment of properties into residential housing, the creation of the City owned JAM parking structure, and the development of the Hamilton Canal District. As is the case with any transitional living facility in a community, proper management and open lines of communication are necessary to ensuring such facilities are good neighbors to those residing and working in the surrounding neighborhood.

There are two significant issues surrounding the current operations of the Lowell Transitional Living Center (LTLC): 1) the lack of on-site monitoring of federally funded programs; and 2) strained community/neighborhood relations. Both these issues stem from the lack of proper day-to-day management of the facility. Recognizing that strong management and leadership are necessary to running a well-received transitional living facility, the LTLC Board of Directors recently completed an executive director search process, and recently offered the position to a highly qualified candidate with a great deal of experience with the financial management and administration of policies and programs of similar urban transitional living facilities. In the meantime, over the past several months the Division of Planning and Development (DPD) staff has been working extensively to addressing the two significant issues outlined above.

Results of On-site Monitoring of Federally Funded Programs at Lowell Transitional Living Center

As the administrator of several Federal grant programs for the City of Lowell, the Division of Planning and Development (DPD) is responsible for the monitoring of sub-recipients to ensure that funding has been provided in accordance with the requirements of the Federal grant.

The Lowell Transitional Living Center (LTLC) is a sub-recipient of the City of Lowell, operating five programs funded through the McKinney-Vento Homeless Assistance Act, Community Development Block Grant, and Emergency Shelter Grant. These programs include case management services, outreach, permanent supportive housing, detox, and community meals. All five programs were monitored between the months of September and November 2007 for compliance with HUD regulations.

The Division of Planning and Development (DPD) conducted on-site monitoring visits at LTLC to determine whether they have implemented and administered funded activities in accordance with applicable Federal requirements. Visits included extensive review of the agency's program files and interviews with appropriate staff. Particular attention was paid to compliance with program eligibility and LTLC's financial management and operational systems.

As a result of the on-site monitoring, a number of findings were discovered that raised concerns. This discovery provides LTLC staff and Board of Directors with an opportunity to review Federal grant requirements, operational policies and procedures, as well as program documentation and performance standards. Until appropriate measures have been taken to address the findings and concerns raised during the review, DPD is holding reimbursement for all funds expended by LTLC during the 2007-08 fiscal year.

LTLC has provided the City with a list of proposed actions to address the findings, and DPD has offered technical assistance and guidance to help shelter staff as they implement their proposed improvements. Future Block Grant funds and Emergency Shelter Grant funds traditionally directed toward the delivery of services at the shelter will be reprogrammed toward assisting with improvements to the operation and management of the agency. A new Executive Director is scheduled to begin in the near future and DPD looks forward to working with LTLC staff as they put new management practices into place.

Lowell Transitional Living Center: Neighborhood Relations

In reaction to concerns expressed by neighborhood residents, property and business owners regarding the LTLC, the DPD has proactively approached the situation by establishing the JAM Shelter Task Force. The Shelter Task Force is designed to be a forum of open communication between the community, the City, and the LTLC. Comprised of JAM residents, property and business owners, representatives from the Police Department and the DPD, and representatives from the LTLC administration and Board of Directors, the goal of this group is to create and preserve open communication and resolve issues that are due to or perceived to be associated with the services provided by the LTLC on Middlesex Street.

Since the creation of the Shelter Task Force in November 2007, progress has been made to resolving several concerns surrounding the LTLC. During the first few meetings, it became apparent that, while the location of the transitional living facility on Middlesex Street does not inherently negatively impact the neighborhood, a major issue of negativity was the appearance and management of the outdoor courtyard space supporting the LTLC meals program. As a result of this discussion, and despite initial resistance from the LTLC, as of the New Year this courtyard space is no longer being used by LTLC, and the entrance to the meals program has been relocated to a more desirable location.

The Shelter Task Force is also working closely with LTLC during their strategic planning process, which is currently being handled by a volunteer consultant. In order to discuss and better understand the neighborhood's perception of the LTLC and its problems within the community, the consultant attended the Shelter Task Force meeting in early January. It is anticipated that the completed Strategic Plan will incorporate significant and lasting action steps to improving the management and relations of the LTLC with neighborhood residents, property and business owners.

In order to solidify and maintain the progress made to date within the JAM Neighborhood, the Shelter Task Force continues to meet on a regular basis. Communications between the LTLC, the City and the neighborhood are still damaged by years of in-effective management, but are improving because of the Shelter Task Force. While a great deal of progress is still necessary in order to further improve the conditions of the neighborhood, it is clear that the participants of the Shelter Task Force are committed to creating a vibrant neighborhood within which the LTLC can exist.

List of Group Homes

The term "group home" is used to describe a variety of congregate housing facilities, serving diverse populations and needs. While it is not easy to quantify the exact number of these facilities that operate in Lowell, the City is aware that there are a disproportionate number of group homes within Lowell given the City's population. The majority of group homes are licensed by State and/or Federal agencies.

Within Lowell, an accurate list of the names and locations of group homes does not exist, and is not maintained by the City. There are no local licenses required for the operation of such facilities. Further, State statute and supported case law prohibits the ability of communities to prohibit, restrict or regulate the location, number, etc. of such facilities. Massachusetts General Law Chapter 40A Section 3 states that no ordinance or by-law shall “prohibit, regulate, or restrict the use of land or structures for… education purposes,” which covers such uses as group homes.

AB/JE/AL/ns

1/30/08

cc: James Errickson, Urban Renewal Project Manager

Allison Lamey, Associate Planner - Consolidated Plan Programs

Patricia Talty, Assistant City Solicitor

SUBJECT: COUNCIL MOTION OF JANUARY 22, 2008 BY ALAN KAZANJIAN

REQUEST THE MANAGER REPORT ON THE STATUS OF

MIDDLESEX SHELTER AND NUMBER ETC. OF OTHER GROUP HOMES IN LOWELL

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