Outdoor Homelessness Strategy Plan
Outdoor Homelessness Strategy Plan
Outdoor Homelessness Strategy Plan
Homelessness Strategy
A housing-focused approach to persons experiencing unsheltered homelessness
Purpose
This strategy guide establishes a framework for the City of Nashville/Davidson County’s response to
outdoor homelessness. By pairing targeted and intensive outreach with housing surge events, the
Nashville community will end homelessness for people living in large encampments and other
unsheltered locations and create a strategic, housing-focused response for people who experience
unsheltered homelessness in the future.
August 2022
Metro Homeless Impact Division serves as the Nashville-Davidson County Homeless Management
Information System Lead Agency, coordinates a community response to street homelessness through
its homeless outreach team, and leads efforts to continue to improve our community's Coordinated
Entry process.
https://www.nashville.gov/departments/social-services/homeless-impact-division
Prepared by
CoC Shelter Committee, Metro Homeless Impact Division, and other Community Stakeholders
1
Contents
Introduction 3
Outdoor Homelessness Strategy Team 3
Outdoor Homelessness Strategy Design 4
Guiding Principles 5
Encampment Site Assessment 5
Defining Encampments 6
Large Encampments 6
Small Encampments 6
Hot Spots 6
Site Assessment Protocol 6
1. Location Characteristics 6
2. Vulnerability of Population (Safety) 6
3. Environmental Health 7
H.O.P.E. (Housing Opportunities for People in Encampments) Core Practice Standards 8
Roles and Responsibilities 10
Project Lead 10
Encampment Response Outreach 10
General Outreach 10
Verification of Disability 11
Mental Health Supports/ SOAR 11
Housing Navigation 11
Housing Case Management 12
Landlord Engagement 12
Transportation 12
Community Liaison 13
Timeline 14
Appendix A
Appendix B
2
Introduction
Homelessness is a complex social problem requiring a strategic response of crisis services, housing
stabilization options, and coordination across multiple public systems and service provider agencies.
Unsheltered homelessness can be even more challenging to address because unsheltered persons are
often reluctant to engage and experience debilitating trauma and co-occurring disabilities at greater rates
than their sheltered peers, and too often the necessary services and housing designed for persons
experiencing homelessness are not accessible to those who are unsheltered.
Under the strategic leadership of the Metropolitan Government of Nashville and Davidson County
Mayor John Cooper, the Metropolitan Council of Nashville and Davidson County, the Metro Homeless
Impact Division of Metro Social Services, and the Continuum of Care Shelter Committee, the Nashville-
Davidson County Homelessness Planning Council adopted a community strategy of engagement and
housing rather than merely moving the issue out of public view. Elected leaders, public officials, service
providers, peers and advocates are addressing unsheltered homelessness through policies and
interventions that are driven by data, backed by evidence, centered on people, and aimed at effective
and sustainable outcomes.
This Outdoor Homelessness Strategy documents the existing practices that have led to successful
permanent housing placements for unsheltered persons and provides a road map for encampment
response and ongoing work in this area.
Appendix A lists Shelter Committee members and their affiliated organizations, as well as key
stakeholders invited to collaborate on the project. The Shelter Committee is comprised of local service
providers and people with lived experience who have relevant experience with street outreach,
encampment response work, and housing. The group met over the course of several weeks to
document effective practices, define roles and responsibilities among community partners engaged in
the work, and establish standards and protocols for ongoing outreach and encampment response
strategies. The Shelter Committee’s work has culminated with this Outdoor Homelessness Strategy.
The insights of persons who themselves have navigated the daily complexities of unsheltered
homelessness greatly inform the current Outdoor Homelessness Strategy and recommended
standards for ongoing encampment work included in this report.
3
Outdoor Homelessness Strategy Design
The Metropolitan Government of Nashville and Davidson County and the Nashville-Davidson County
Continuum of Care (CoC) have largely coalesced around a strategy defined by HUD. This approach is
described in HUD’s report, Exploring Homelessness Among People Living in Encampments and
Associated Cost, February 2020. Nashville pairs this approach with intensive outreach and engagement
and a housing surge event to move people living outdoors quickly indoors. This focus is also applied
prior to any encampment
✓ Housing Surge ⇒ resource-intensive housing efforts (an example could be several housing fairs)
to match all encampment residents with either an interim housing placement and a pathway to
permanent housing, or immediate permanent housing placement.
The influx of American Rescue Plan (ARP) funding coupled with a Special Notice of Funding Opportunity
(NOFO) on outdoor homelessness release by HUD in June 2022 have enabled Nashville to outline this
strategic, system-wide approach to outdoor homelessness with a focused plan of engagement and
supports in housing. The keys to this project’s success will flow largely from three significant factors: 1)
substantial new permanent housing resources resulting from ARP funding a $25,000,000 investment, 2)
substantial investment in supportive services and data strategies and 3) a substantial investment in
bridge housing and 4) a coordinated outdoor homelessness strategy supported by government and non-
government partners.
4
Guiding Principles
The Shelter Committee established a set of guiding principles to inform the outdoor response practice
standards outlined in this report. Guiding principles include the following core elements:
1. Nashville-Davidson County does not endorse sanctioned encampments as a response
to unsheltered homelessness. Forcibly relocating individuals to designated camps is not
an effective strategy.
2. All people can be housed, with the right housing model and service supports.
3. To the greatest extent practicable, individual choices about where and how to live should be
honored.
4. Addressing encampments requires collaboration from multiple sectors and systems; no single
entity can or should have exclusive responsibility.
5. Non-punitive, engagement-focused approaches are imperative, rather than enforcement,
clearance, and criminalization. Nashville will strategically provide housing alternatives to
address broader community health and safety to avoid unnecessary enforcement efforts
6. Intensive and repetitive outreach and engagement is the key to building relationship (and
ultimately trust) with neighbors living in encampments.
7. Neighbors in encampments respond best when there are clear, low-barrier pathways to
permanent housing, consistency and follow-through.
8. Permanent housing placements must be consistently paired with a full range of support
services to ensure individuals are successful in maintaining their housing.
9. Peer mentors and advocates should be considered the backbone of the outdoor response
practice.
10. Clear, simple, direct and consistent communication is the goal.
To help Nashville public officials, homelessness assistance providers, and communities impacted by
outdoor homelessness to understand 1) the nature of encampments; 2) strategies for responding to
encampments, and 3) the ongoing scalability of those approaches, this report organizes encampments
into three distinct typologies: large, small, and hot spots. This report primarily focuses on large
encampments; but the strategies, service approaches, housing interventions and community response are
largely consistent across all three typologies.
5
The following assessment was developed to prioritize resources expeditiously based on health and safety
with a goal of preserving life to those living outside, while acknowledging prioritizing one person or group
over another, it is inherently unfair. Prioritization becomes necessary due to insufficient resources, and is
essential to address racial equity.
Defining Encampment
● Large Encampments
o Concentration of 10 or more persons in a definable location
o Use of structures for sustained habitation (cardboard boxes, tarps, tents, non-permanent
structures)
o Evidence of sustained presence - trash piles, shopping carts
● Small Encampments
o Concentration of 3-9 persons in a definable location
o Use of structures of sustained habitation (cardboard boxes, tarps, tents, non-permanent
structures)
o Evidence of sustained presence, although degree/visibility may be less than large
encampments
o Hot Spots
● Hot Spots: 1-3 people in a definable location
o Evidence of bedding down but not sustained presence in the same location for periods of
time greater than one week.
Prioritization Protocol
Domains included in the site assessment protocol include evaluating the vulnerability of the encampment
residents, location characteristics, and considering environmental health issues. Each domain and its
associated characteristics are listed below:
● Environmental Health
o Presence of rats.
o Biowaste - blood, used condoms, feces, urine, vomit
o Loose sharps - used needles, broken glass, barbed wire
o Excessive disorganized garbage and open trash throughout site
Each domain in the site assessment is reviewed by a committee with members of MHID and Outreach
organizations. A rating system (zero (0) to five (5)) is used to note the presence of the domain
characteristic and the characteristic's relative intensity, scale, or degree of concern. The rating system is
subjective, so the results are reviewed as a team and shelter committee is notified to develop relative
consensus around the major concerns and issues associated with the specific encampment site.
The Team assessing encampments shall consist of members of MHID, community nonprofit COC members,
and health workers. Community members were asked to express their willingness to be on the assessment
team. Team members shall remain static and if a team member can no longer serve, they need to choose
their replacement. Team Members are listed in Appendix B.
7
Housing Opportunities for People in Encampments (HOPE) Core Practice
Standards
The practice of coordinating and delivering outreach services to unsheltered persons is a critical aspect
of Nashville’s encampment strategy. Some unsheltered persons use encampment living as a strategy
for maintaining anonymity by avoiding contact with emergency shelter and other crisis services. Or
unsheltered persons may be unable to access needed emergency services due to barriers to access at
those facilities. Outreach teams are specifically designed to address these barriers, often a result of
criminal backgrounds and/or behavioral health issues that may be inhibiting an unsheltered person’s
ability to seek and receive services.
Outreach, as a system-wide strategy for identifying unsheltered persons, engaging persons in services,
and facilitating successful housing placements, functions most successfully when all outreach teams and
staff adhere to a set of core practice standards. These practice standards describe the most effective
engagement strategies and service delivery modalities. The core practice standards outlined in this
section, while not requirements, are generally understood by outreach staff and service delivery
agencies as effective and necessary components of outreach to unsheltered persons.
Outreach practice standards are organized according to the following eight key attributes, described
below.
Systemic
1. Outreach is part of a system-wide strategy rather than a stand-alone program of a single agency
and outreach organizations attend the virtual Outreach Coordination meetings led by MHID.
2. Outreach is connected to Coordinated Entry
• Outreach staff use standardized assessment protocols to document client needs and
prioritize housing and service response
Comprehensive
3. Geography. Entire Nashville/Davidson County geographic area is included.
• Include all hot spots, HUB reports, coordinate assignments and service assignments
4. Outreach activity. All Outreach contacts, engagements, CE vulnerability scores, housing
referrals, and placements are documented in HMIS
5. Data. Full data history of client used to support housing strategy. Use of data sharing
agreements to build comprehensive data sets of client history and needs
• Leverage technology/apps to coordinate mapping and tracking, and service
delivery/outreach
Coordinated
6. Direct service partners. Services are coordinated across all service partners regardless of
funding, catchment area, target population
7. Public and private systems. Coordination occurs across the broader network of systems and
supports – community engagement officers, first responders, healthcare centers, behavioral
health providers, child welfare, business development districts, faith-based organizations,
community service organizations, peer support/mentors.
8. Community Training conducted for multi-disciplinary Outreach team(s), together, so that
8
approach is coordinated and consistent. Ongoing with HUD Technical Assistance
9
Housing-Focused
9. Outreach is paired with/coordinated with housing surge events, when available
10. Goal is permanent housing. ‘Interim housing’ is available but not required on pathway to
permanent housing
• Options include Diversion, RRH, PSH, other safe housing options
11. No preconditions for housing. Referrals are made to available housing regardless of
sobriety, income, criminal records, treatment engagement, service engagement
Person-Centered
12. Clients have option to refuse housing and service offers.
13. Clients will be provided choice:
People have the choice to live alone or with others of their choosing (including pets)
People have some choice over where to live (neighborhood, housing unit, program vs.
private landlord).
People’s personal goals are the basis for service provision
14. Outreach providers employ staff with lived experience. Peer mentors imperative.
15. Outreach staff offer warm hand offs to other service providers and resource connections
16. Outreach staff employ strengths-based problem-solving techniques to identify housing
solutions most aligned with client goals
Trauma-Informed
17. Assumes persons residing in encampments are more likely than not to have a history of trauma
18. Street outreach staff receive regular training in evidence-based practices
Culturally Responsible
19. Street outreach efforts are respectful and responsive to the beliefs and practices, sexual
orientations, disability statuses, age, gender identities and expression, cultural preferences,
and linguistic needs of all individuals
20. Use data to analyze inequities and disparities among persons of color and historically
disenfranchised backgrounds
Safety-Focused
21. Safety of clients and staff is prioritized throughout all planning, direct service, housing surge
events
22. Protocols must be in place to assess for safety risks of staff and clients
23. Use harm reduction principles and non-coercive service provision
24. Ensure mental health supports are present
outdoor homelessness strategy and identifies the lead entity(ies) responsible for performing each
function.
10
Project Lead
Metro Homeless Impact Division (MHID)
❖ Implement system policies on unsheltered homelessness, encampment response, and
public space management for persons experiencing unsheltered homelessness
o Act as intermediary among public officials, development districts, community and
neighborhood groups, homelessness assistance providers and persons
experiencing unsheltered homelessness
❖ Define and implement Encampment Response Plan
o Coordinate communication and tasks among all project partners
o Maintain cross-system collaboration protocols, including MOUs,
partnership agreements, outreach standards, and protocols for housing
surge events
o Define encampment targeted response schedule and work with
Prioritization Encampment Assessment Team to determine prioritization of
encampments.
o Lead housing surge events and outreach efforts leading up to encampment
restoration
o Conduct debriefing meetings with all Encampment Response Team and Shelter
Committee Members to identify successes and challenges and implement continuous
improvement strategies
o Identify ongoing funding opportunities to fill identified housing and services gaps
General Outreach
MHID with outreach organizations including but not limited to People Loving Nashville, Colby’s
Army, The Salvation Army, Shower the People, The Contributor, Mental Health Coop, Park Center
❖ Conduct intensive outreach to all persons experiencing unsheltered homelessness, inclusive of
persons residing individually in outdoor locations without other persons in the immediate
vicinity, persons living in vehicles, and persons residing in encampment settings where 3 or
more persons are living together.
o Staff members from service organizations or government agencies locate, identify, and
build relationships with people experiencing unsheltered homelessness who are not
otherwise accessing crisis services or housing resources
o Enter individuals into HMIS and CE and Conduct vulnerability index scoring
11
oProvide connections to housing-related assistance and other types of assistance such
as healthcare, legal assistance, employment assistance and connection to other
community resources and benefits
❖ Coordinate the timing, location, and provision of outreach assistance with the Encampment
Response Project Lead according to system plans and strategies
Verification of Disability
Including but not limited to Neighborhood Health, Nashville Cares, East Nashville Wellness Center,
Tennessee Disability Coalition, Disability Consultants
❖ Assist persons residing in encampments to secure verification of disability for purposes of
eligibility for PSH
Housing Navigation
Including but not limited to The Salvation Army, Community Care Fellowship, The Contributor, Step Up,
Mental Health Coop, Safe Haven, Park Center, People Loving Nashville, Room in the Inn, Oasis Center
(youth) Nashville Rescue Mission, Tennessee Valley Healthcare System (veterans)
❖ Assist persons residing in encampments with housing search, application and move-in transition
support
❖ Assist outreach staff prior to and during housing surge events to ensure persons residing in
encampments have necessary identification, certification of disability (if applicable), housing
application support, transportation, and other system navigation supports as necessary.
❖ Assist housing case management staff at lease signing and throughout the client move-in
process to ensure the client’s transition from encampment to housing is as smooth and
supportive as possible
❖ Assist persons residing in encampments with housing search, application and move-in transition
support
❖ Mainstream Benefits (SNAP, Lifeline/ACP, Heathcare.gov/TennCare, TANF/Families First, Child
Support, Unemployment, Workers Compensation)
❖ Vital Documents (ID, Social Security Card, Birth Certificate/Proof of Citizenship, Proofs of
Income, and DD- 214, if applicable)
❖ Best Foot Forward (Arrears/evictions, credit restoration, criminal background mitigation)
❖ Assist with Voucher/Subsidy Eligibility (Section 8, PBV/SRO, HUD-VASH, Public Housing)
❖ Assist with obtaining and moving persons belongings to storage if temporary housing does not
afford the space. Storage will be a locked commercial storage facility secured by Metro Homeless
Impact Division and persons belongings will be tagged.
❖ Assist housing case management staff at lease signing and throughout the client move-in
process to ensure the client’s transition from encampment to housing is as smooth and
supportive as possible.
12
Housing Case Management
Including but not limited to The Salvation Army, Community Care Fellowship, The Contributor, Step Up,
Mental Health Coop, Safe Haven, Park Center, People Loving Nashville, Room in the Inn, Oasis Center,
Nashville Rescue Mission, Tennessee Valley Healthcare System (veterans)
❖ Assist persons residing in encampments upon enrollment in a housing project (Diversion,
RRH and/or PSH)
❖ Provide in-person transition assistance upon client lease signing
❖ Provide ongoing, in-person case management assistance based on need to persons in
housing, including housing stabilization planning, budgeting, assistance accessing public
benefits, assistance accessing community resources, employment assistance, support with
maintaining proficient tenancy skills, and conflict mediation among housing client and
property owner/manager.
❖ Provide or assist with resources or real connection to resources, including substance abuse
counseling/treatment/ mental health counseling/treatment/ community building/ nutritious
food security/ pet care and support/ domestic violence prevention response/ peer support.
❖ Secure a mailing address for persons.
Landlord Engagement
Including but not limited to Low Barrier Housing Collective, MDHA, MHID The Salvation Army,
Community Care Fellowship, The Contributor, Step Up, Mental Health Coop, Safe Haven, Park Center,
People Loving Nashville, Room in the Inn, Oasis Center, Nashville Rescue Mission, Tennessee Valley
Healthcare System (veterans)
❖ Conduct ongoing outreach to area rental property owners and managers to secure units for
housing surge events.
❖ Process Landlord Incentive Fees to secure rental properties for use in housing surge events
❖ Maintain detailed status of each property – location, tenant selection criteria, unit inspection
status
❖ Participate in housing surge events by assisting with housing applications, unit trades and
transitions among housing surge participants
❖ Act as primary point of contact with all property owners/managers to facilitate clear, timely and
supportive communication
Transportation
Including but not limited to The Salvation Army, People Loving Nashville, Community Care Fellowship,
Shower the People, The Contributor, Haven, Mental Health Coop, WeGo, Oasis Center, Nashville Rescue
Mission, Tennessee Valley Healthcare System (veterans)
❖ Provide transportation assistance to persons transitioning from encampments to permanent
housing.
❖ Provide transportation assistance for the personal belongings of persons transitioning from
encampments to permanent housing. Transport belongings and materials items to housing
locations and/or storage facilities
13
Community Liaison
Metro Homeless Impact Division
❖ Coordinate public updates and information sharing to ensure public officials, elected officials,
community members, media and Encampment Response Team members are updated on status
of ongoing encampment response efforts
Lived Experience: Bradley Seigle, April Burns-Norris, Alex Smith, Sheila Decker, Leigh Holland
Kimberly Perkins, Albert Malone, Josephine Boone, Jessica Ashby, Liz Mallard, Kim Eatherly
Appendix B