Boone County Homelessness Task Force Report

February 2020

Background
At the direction of Boone County Judge Executive Gary Moore and City of Florence
Task Force
Mayor Diane Whalen, the Boone County Homelessness Task Force (Task Force)
formed in early 2019 to further the discussion of homelessness in the Boone County Laura Pleiman, Chair
community. Members of the Task Force included representatives from county and city Boone County
government; library, sheriff, and school officials; and nonprofit organizations serving
the homeless community. The group met regularly throughout 2019. This Report is a Matthew Webster
culmination of that work to date. Boone County

Patricia Wingo
Process
Florence
The Task Force organized its work around understanding both the homeless
population and available resources within Boone County. Identifying the demand for
Danielle Amrine
services versus available resources pinpointed service delivery gaps wherein
Welcome House
supplementary interventions could further be explored. In addition, the Task Force
perceived future work falling into short-term, mid-range, and long-term strategies.
Wonda Winkler
Brighton Center
The Task Force began work on one immediate short-term intervention: planning for
the development of an emergency weather plan.
Cindy Carris
Mary Rose Mission
Data Collection – Homeless Population
The Task Force reviewed available data on the population experiencing homelessness
Carrie Herrmann
within the County and found the information incomplete. In response to this gap, a
Boone County Public
specialized census, named B-Count (Boone County Count), was conducted by our
Library
nonprofit partners, Brighton Center and Welcome House, over a two-week period in
October 2019. The B-Count was unique from the Kentucky Housing Corporation’s K-
Mark Raleigh
Count (the HUD-mandated statewide census of homeless conducted annually the last
Boone County
week of January) in that it looked for those experiencing both unsheltered
Schools
homelessness and those living under the expanded McKinney-Vento definition of
homelessness (living doubled-up with another family, in a hotel/motel, etc.).
Linny Cloyd
Boone County Sheriff
The Task Force was compelled to include this “sheltered” homeless group in the B-
Count for several reasons. The sheltered homeless are often individuals most hidden
and include significantly more children than the unsheltered population. Many of the
349 children reported as homeless by Boone County Schools in the 2018-2019 school
year fall into this category. This is also a population wherein lower cost interventions
(emergency funding to avoid eviction) can prevent unsheltered homelessness.

Prior to engaging the B-Count, first responders, county and city employees, and staff
from Welcome House established a communication network. This network created a
mechanism for municipal employees to report homeless encampment locations found
during the course of their work to Welcome House. This reporting would 1) facilitate
the Welcome House Outreach Team’s provision of services and 2) identify geographic
areas to visit when conducting the B-Count. This partnership is ongoing.

1
The results of the B-Count demonstrated a total of 115 individuals experiencing homelessness during
the time of the Count.

B-Count Homeless Count

Sheltered

Unsheltered

0 10 20 30 40 50 60 70 80

While the majority of the counted population were adults between the ages of 26 to 55 years, 13 of 40
individuals (33%) in the sheltered count were children between ages 6 to 17 years.

30
25
20
15
27 26
10 19
5 9 10
0 6 7 4 3 2
0
1-5 6-12 13-17 18-25 26-35 36-45 46-55 55-60 61-67 68+ UNKNOWN

Figure 1B-Count Respondent Age

Those experiencing sheltered homelessness were more likely to be first-time homeless (83%), more
likely to have a source of income (61%), and more likely to include households with children (61%).
Conversely, the unsheltered population were more likely to be chronically homeless (57%), have a
chronic illness (52%), and less likely to have a source of income (61%). Both groups reported minimal
history of substance abuse or mental illness and overwhelmingly reported access to housing as the
service most helpful to them.

Full review of results of the B-Count are available in Addendum A.

2
Data Collection – Resources
The Task Force also reviewed resources available along the homeless spectrum both regionally and
specific to Boone County. This review included a community assessment of services to prevent
homelessness (emergency rent and utility funds), outreach programs, emergency shelters, transitional
housing, and subsidized housing. An in-depth review of affordable housing stock within the county
exceeded the Task Force’s capabilities and was therefore not included. However, the County is pursuing
the use of an intern from the University of Louisville McConnell Scholars program to complete this
analysis of the homeless services spectrum (below).

Emergency Transitional Subsidized Affordable

Prevention Outreach
Sheltering Housing Housing Housing

The results of this review largely validate widely-held assumptions about the shortage of available
resources. Though a concerted effort in the development and support of homeless outreach has
bolstered this valuable resource in Boone County, there are constraints on available resources in every
other intervention along the spectrum. Most notably is the lack of any permanent emergency shelter or
transitional housing within the county though Boone residents have access to these services in adjoining
counties. Even with access to those services, the Boone County unsheltered homeless population alone
would account for nearly half (45%) of all available regional shelter beds (164).

Boone County Homeless/Shelter Beds

Boone County Homeless

Available Shelter Beds

0 20 40 60 80 100 120 140 160 180

Additionally, while there are several options for subsidized housing (1003 Housing Choice Vouchers and
951 other subsidized units throughout the county), access to these services are often reserved for those
who are aged (62 years or older), have a disability, or have children in the home. Further the Boone
County Assisted Housing Department reports of numerous challenges to finding housing within the
private market in Boone County to accept the Housing Choice Voucher; which has resulted in 80 unused
vouchers, issued for Boone County residents, in January 2020 alone.

A full report on resources available to Boone County residents is available in Addendum B.

Data Collection – Challenges

Similar to most census ventures, the B-Count was not flawless and does not stand as a final count on
individuals experiencing homelessness in Boone County. This is reflected most notably in the sheltered
homeless count. The Task Force would like to re-engage with the school systems in spring 2020 to more
accurately capture these sheltered individuals and families. Partnership with the schools will be critical
to obtaining a more accurate count especially as it applies to the number of homeless children.

3
Although the unsheltered homeless may not be a full count, the comparison of the results of the B-
Count to past K-Count results and the recently published report of the Northern Kentucky Homeless
Working Group validate the results. Though each of these counts has shortcomings in either the design
or execution of the count, the results indicate an average of 76 homeless individuals within Boone
County.

2019 Boone County Homeless Results

NKY Homeless Work Group

B-Count

K-Count

0 10 20 30 40 50 60 70 80 90 100

Additionally, though the Task Force employed many community providers to understand available
resources it is possible some have been overlooked. However, it is the Task Force’s assumption that this
would be a small number of unaccounted resources.

Short-Term Strategies – Cold Weather Sheltering Plan

Early in meeting, the Task Force identified the creation of a Cold Weather Sheltering Plan (Plan) as a
short-term strategy on which to begin work immediately. After thorough review of similar plans both
across the commonwealth and nationally, the Task Force has designed a proposed framework for a Plan
which will coordinate public and private resources to maximize benefits within the Boone County
community. The objective of the Plan is to safeguard the lives of vulnerable individuals experiencing
homelessness by providing temporary shelter during extreme inclement weather conditions. This is
achieved through the Plan by a process to:
1. Provide a mechanism to identify public and private partners;
2. Formalize the activation of the plan;
3. Outline response and operating expectations for identified sheltering partners;
4. Identify avenues to communicate the plan’s activation to those in need;
5. Enable modes of transportation to sheltering partners;
6. Link social services to those in need during extreme cold weather events;
7. Establishes a system to assess needs and resources on an on-going basis.

A full draft of the Plan is available in Addendum C.

4
Recommendations
The work of the Task Force to-date has been focused on establishing the baseline of need within the
Boone County community. This work sought to better identify who is experiencing homelessness here –
how many individuals and families, how long have they experienced homelessness, and what are some
barriers to accessing housing. It also pursued a better understanding of available resources in order to
capture the true landscape of available assistance. Having completed this work, the Task Force
identified the following recommendations for consideration.

1. Operationalize and implement the Boone County, Kentucky Cold Weather Sheltering Emergency
Plan.
2. Re-employ the B-Count for the sheltered population with stronger connection to Boone County
Schools and Walton Verona Schools.
3. Expand the scope and composition of the Boone County Homelessness Task Force to review
mid-range and long-term initiatives addressing the needs identified in this Report with specific
emphasis on reviewing emergency sheltering, preventative programming, and transitional
housing resources. Identify additional community stakeholders as needed and consider
professional consultation services.
4. Work, to extent possible, with the Northern Kentucky Homeless Working Group to create
regional response to homelessness. Encourage the creation of a Northern Kentucky Homeless
Coalition.
5. Engage with community stakeholders in conducting a study of affordable housing resources
within Boone County.
6. Assess the prospect of a system for better identifying and tracking homeless and precariously
housed families and children.

5
 Addendum A

2019 B-Count Survey Results

Unsheltered Survey
Surveys Completed 72 Age Person 1 Person 2 Person 3
Total People 75 1-5 0 0 0
6-12 0 0 0
Male 56 13-17 1 0 0
Female 19 18-25 2 1 0
26-35 13 0 0
Alaskan/American Indian 0
36-45 22 0 0
Asian 0
46-55 19 1 1
Black or African American 4
55-60 9 0 0
Hawaiian or Pacific Islander 0
61-67 3 0 0
White or European American 66
68+ 1 0 0
Two or More Races 5
Other 0
Unknown 1 0 0

Yes No
First Time Experiencing Homelessness 25 47
Chronically Homeless? 43 29
Do you have any income? 28 44
Have you ever served in military? 10 62
Chronic illness or disability 35 37
History of substance abuse 27 45
History of mental illness 23 49

When do you expect to find permanent housing?

1-2 days 1-2 weeks 1-2 months 6 months+ unknown
0 2 7 4 59

What services would be most helpful to you?

Housing Job Healthcare Cash-Assistance Transportation
60 23 9 23 32

6
 Addendum A

Sheltered Survey

Surveys Completed 23 Age Person 1 Person 2 Person 3 Person 4

Total People 40 1-5 0 0 0 0
6-12 0 1 6 2
Male 23 13-17 0 4 1 0
Female 17 18-25 4 0 0 0
26-35 4 2 0 0
Alaskan/American Indian 0
36-45 5 0 0 0
Asian 0
46-54 5 0 0 0
Black or African American 1
55-60 0 1 0 0
Hawaiian or Pacific Islander 0
White or European American 39 61-67 1 0 0 0
Two or More Races 0 68+ 2 0 0 0
Other 0 Unknown 1 0 0 0

Yes No
First Time Experiencing Homelessness 19 4
Chronically Homeless? 5 18
Do you have any income? 14 9
Have you ever served in military? 5 18
Chronic illness or disability 12 11
History of substance abuse 5 18
History of mental illness 7 16

When do you expect to find permanent housing?

1-2 days 1-2 weeks 1-2 months 6 months+ unknown
0 0 5 1 17

What services would be most helpful to you?

Housing Job Healthcare Cash-Assistance Transportation
21 2 5 3 2

7
 Addendum B

Boone County Homeless Resource Summary

Prevention Programs
Funds
Organization Program Requirements Available Benefit Amount
Be Concerned Utility Assistance Resident, covers up $75 of bill $3,600 Max $75
NKY CAC Boone County MH Funding Resident, cut-off/eviction notice $14,080 Max $300
NKY CAC Boone County Senior Funding 60+ years, cut-off/eviction notice $23,760 Max $300
St. Vincent De Paul Rent/Utility Assistance Depends on Conference varies varies
Barracks Project Rent Assistance Veterans at risk of losing their homes varies varies

Emergency Sheltering
Organization Program Location Capacity Clientele
Brighton Center Homeward Bound Covington 16 Youth 9-17
Emergency Shelter of NKY Cold Shelter Covington 32 Men, Women (men's program in the summer)
Emergency Shelter of NKY Cold Shelter Covington 59 Men, Women
Fairhaven Rescue Mission Shelter Covington 22 Men
Family Promise Shelter Newport 15 Families
Welcome House Shelter Covington approx 30 Women, children (males to age 13)
Women's Crisis Center Shelter Newport approx 30 Women, children
Women's Crisis Center Shelter Maysville approx 26 Women, children
Florence Christian Church Florence approx 20 Men, Women for 10 coldest nights in January

Outreach
Organization Program Location Program Size
Barracks Project Veteran's Outreach NKY Volunteer-based
Brighton Center Street Outreach NKY 1 FTE, 1PTE
Legal Aid Legal Outreach Boone Varies by division of law
Maslow's Army Outreach NKY Volunteer-based
PIN Street Outreach Boone Volunteer-based
Welcome House Medical Outreach Boone 3 FTE

Transitional Housing
Organization Program Location Program Size
Brighton Center Rapid-Rehousing NKY varies
Catholic Charities Supportive Housing Elsmere 16 apartments
CILO Permanent Supportive Housing NKY varies
Welcome House Gardens of Greenup + Kings Crossing Covington 28 units (2,3,4 bedroom)
Willow Run Transitions Covington 12 Units

8
 Addendum B

Subsidized Housing
**There are 1003 Section 8 Vouchers available to Boone County residents.
Eligibility: disabled, aging, and low-income individuals/families who live, work, or attend school in
Boone County

Available through Boone County Assisted Housing: 2950 Washington Street (3rd Floor), Burlington, KY 41005; PH: 859-334-2105

As of January 2020, there are about 80 unused Section 8 vouchers due to inability to find landlords willing accept them.

Income Based Units/complex Location Population Address

8551 Aldersgate Drive, Florence, KY
Aldersgate 40 Units Florence 62+ 41042
62+ /disability 100 Christian Drive, Florence, KY
Arcadia 215 Units Florence impaired 41042
12661 Dixie Highway, Walton, KY
Brookview Townhomes 30 Units Walton Individuals/families 41094
2895 Douglas Drive, Burlington, KY
Burlington Terrace 24 Units Burlington For families 41005

Dixie Apartments 101 Units Florence Individuals/families 7825 Riehl Drive, Florence, KY 41042
85935 North Evergreen Drive,
Evergreen Apartments 44 Units Florence Individuals/families Florence KY 41042
families/disability 10285 Memory Lane, Florence, KY
Magnolia Glen 60 Units Florence accessible 41042
13160 Service Road, Walton, KY
Town Creek Crossing 44 Units Walton for Family 41094
62+;
mobility/disability 8510 Old Toll Road, Florence KY
Panorama Plus 60 Units Florence impaired 41042
6032 Southpointe Drive, Burlington,
South Point 88 Units Burlington For Families KY 41005
Stephenson Mill For 26 Old Stephenson Mill Rd, Walton,
Apartments Walton individuals/families KY 41094
3023 Country Pl Ct, Hebron, KY
Summit Country Place 150 Units Hebron for Family 41048
For
Walton Commons 24 Units Walton individuals/couples 25 Kuchle Drive, Walton, KY 41094
For
Walton Townhomes 24 Units Walton individuals/families 25 Kuchle Drive, Walton, KY 41094
62+;
mobility/disability
Walton Village I 31 Units Walton impaired 30 School Road, Walton, KY 41094
62+;
mobility/disability
Walton Village II 16 Units Walton impaired 30 School Road, Walton, KY 41094
Units in 112
Total = 951 Units Burlington= (12%) 100% for individuals or families
Units for 62 + /Disability 520
Impaired= 362 (38%) Units in Florence= (55%) 60.6% of these units are for 62+/disabled
Units for 150
Individuals/Families= 439 (46 %) Units in Hebron= (16%) 100 % for families
169
Units for Families= 150 (16 %) Units in Walton= (17%) Divided evenly

9
 Addendum C

Boone County, Kentucky

Cold Weather Sheltering
Emergency Plan

Adopted By:

Boone County Fiscal Court

City of Florence
City of Union
City of Walton

1. Introduction

This plan outlines provides the framework for Boone County, Kentucky, the Cities of Florence, Union and
Walton and Community Partners to coordinate public and private resources when outside weather pose
an immediate danger to the life and health of unsheltered people, especially families and those most
vulnerable in inclement conditions.

This plan provides the process which will:

a) Formalize the activation of the plan;

b) Create a mechanism to identify public and private partners;
c) Outline response and operating expectations for identified sheltering partners;
d) Identify avenues to communicate the plan’s activation to those in need;
e) Enable modes of transportation to sheltering partners;
f) Link social services to those in need during extreme cold weather events;
g) Construct a mechanism to assess needs and resources on an on-going basis.

2. Objective

The objective of the plan is to safeguard the lives of vulnerable individuals experiencing homelessness
by providing temporary shelter during extreme inclement weather conditions that pose a threat to
those living without adequate shelter, especially those at greater risk of death due to exposure.

3. Participating Partners

The Cold Weather Sheltering Emergency Plan (The Plan) relies on the participation of valued partners
including:

a) Public sector partners;

10
 Addendum C

b) Sheltering partners from civic, faith-based, and not-for-profit organizations;

c) Social service agencies;
d) Transportation partners from civic, faith-based, and not-for-profit organizations.
All participating partners shall complete a Cold Weather Sheltering Emergency Plan Application to the
Boone County Human Services Department which shall include:

a) Cold Weather Sheltering Emergency Plan Partner Application (see appendix)

b) Copy of Liability Insurance (one (1) million general liability);
c) Affidavit that affirms that all agency volunteers shall have background checks on file
with the partnering agency;
d) Resource list/ Needs Inventory (see appendix)

Sheltering Sites

To be approved as a Cold Weather Sheltering Emergency Plan sheltering site, the site must have the
ability to temporarily house a minimum of ten (10) people in an environment that provides heat,
bedding, and access to bathrooms and space for meals. Sites will identify available resources and onsite
storage capacity. Unmet resource need will be identified by site in advance. Sites will be expected to
generally be able to open when required (with minimum twenty-four hour notice whenever possible)
and house for a minimum of 48 hours.

Transportation Partners

Providing the ability for those in need to travel to the sheltering resources is a critical need. Partner
agencies who identify as able to provide transportation to participating shelters must maintain vehicles
in safe working order, maintain appropriate insurance and be operated by licensed drivers in good
standing with the state of issuance and the Commonwealth of Kentucky.

Social Service Partners

Agencies that desire to provide social services to those utilizing the shelters shall identify their agency
and services provided to be activated as needed during the event.

Public Sector Partners

Public Sector partners will initiate the Cold Weather Sheltering Emergency Plan and will coordinate with
partners to provide appropriate resources to those in need.

4. Initiating the Plan

The chief local elected official in each jurisdiction having adopted the Cold Weather Sheltering
Emergency Plan shall issue an executive order declaring an emergency and initiating the plan based on
the relevant weather conditions facing the community including, but not limited to, outside air
temperature, wind chill and precipitation. Once ordered, the County Administration will develop an
implementation plan in coordination with Human Services, Emergency Management, Law Enforcement,

11
 Addendum C

Fire Service and other appropriate public agencies. Sheltering, transportation and social service partners
will be activated as appropriate for plan implementation.

5. Activating Sheltering Sites

Once activated, sheltering partners who have applied and been approved by the Boone county Director
of Human Services may act as temporary cold weather shelters. While the declaration is in effect,
sheltering partners shall be exempt from certain zoning regulations. Sheltering partners shall prepare
their facility as submitted in the application materials. It is the expectation of the partners that they shall
be prepared to receive those in need within four hours of being activated.

Protocol for Activation

Once notified of the need to be activated, sheltering partners shall:

a) Set-up the shelter facility for housing those in need;

b) Establish an area for meals to be served;
c) Ensure heating is in working order;
d) Notify the County office overseeing the activation of any resource needs;
e) Identify appropriate number of pre-selected volunteers who have background checks
on file;
f) Identify appropriate space for transportation drop-off and in-take of those to be
sheltered;
g) Ensure a weather radio and outside communications are available and in working
order.

Safety and Security

The plan and protocols for sheltering sites shall include provisions to secure the facility and prohibiting
any illegal activities. All participating shelter partners shall limit use of their facilities as a temporary cold
weather shelter for families and individuals experiencing homelessness who are not under the influence
of alcohol or controlled substances not prescribed to the individual. Emergency Dispatch should be
notified immediately if any threat to safety and security, including a situation where an inebriated
individual requests shelter at a sheltering partner.

Underage Occupants

Sheltering partner may not accept/shelter unaccompanied (by a parent or legal adult guardian) youth
under the age of 18. If an unaccompanied youth between the ages 13-17 arrives at a partner facility
seeking shelter, staff/volunteers should immediately notify Emergency Dispatch (911).

6. Activating Transportation Partners

12
 Addendum C

Transportation to sheltering sites is vital to meeting the objectives of the plan and serving the needs of
those requiring shelter in extreme weather situations. Transportation will be provided by:

a) Approved partner agencies;

b) Public transportation;
c) Private transportation utilizing vouchers;
d) Law enforcement agencies as needed.

It is the expectation of the partners that they shall be prepared to receive those in need within four
hours of being activated.

Transportation will be centered on the following pick-up locations in the county and shall be available
for a duration as determined upon activation of the plan:

a) Florence Branch, Boone County Public Library;

b) Burlington Branch, Boone County Public Library;
c) Mary Rose Mission, Florence;
d) Senior Center, Walton;
e) Dream Street, Florence.

7. Social Service Partners

Once sheltering partners are operating, social service partners shall be engaged to assist in providing
access to resources and connecting those in need with available services.

8. De-Activating the Cold Weather Sheltering Emergency Plan

The Cold Weather Sheltering Emergency Plan shall be de-activated by executive order declaring the
emergency rescinded. Partner agencies shall de-mobilize upon such order and emergency sheltering
shall cease. Transportation for those utilizing shelters will be made available back to pick-up locations.

9. Summary

The Boone County Cold Weather Sheltering Emergency Plan is intended to provide safe shelter for those
most vulnerable to extreme cold weather events. Utilizing a partnership between public, private and
not-for-profit agencies, emergency sheltering and basic services can be provided to those in need. While
the objective of The Plan is to safeguard the lives of vulnerable citizens, by providing temporary shelter
during inclement weather conditions that pose a threat to those living without adequate shelter, all
applicable health and safety codes and regulations remain in effect. Through a robust partnership, the
goal of protecting the most vulnerable in the most extreme conditions can be successfully achieved.

13