Transit Agency Practices in Interacting with People Who Are Homeless (2016)

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20 CHAPTER FOUR SURVEY RESULTS: ASSESSMENT OF TRANSIT AGENCY INTERACTIONS WITH PEOPLE WHO ARE HOMELESS INTRODUCTION This is the second of two chapters that present the results of a survey of transit agencies’ interactions with people who are homeless. The previous chapter addressed survey results related to the extent to which people who are homeless are an issue, agency policies and procedures, actions taken, responsibilities and resources, partnerships and community education, and challenges. This chapter focuses on agencies’ evaluations of their efforts. Specific topics include agency assessment of the success of actions taken, benefits and drawbacks, potential improvements, and lessons learned. AGENCY ASSESSMENT OF EFFORTS TO INTERACT WITH PEOPLE WHO ARE HOMELESS Table 27 shows transit agencies’ ratings of their own efforts to interact with people who are homeless. A majority of respondents (53%) rated their efforts as “somewhat success- ful,” and 40% rated their efforts as “neutral.” Interestingly, the seven large transit agencies surveyed rated their efforts as “somewhat successful” (86%) or “very successful” (14%). TABLE 27 AGENCY RATING OF EFFORTS TO INTERACT WITH PEOPLE WHO ARE HOMELESS Agency Rating No. Agencies Responding % Agencies Responding Very successful 1 2 Somewhat successful 25 53 Neutral 19 40 Somewhat unsuccessful 2 4 Very unsuccessful 0 0 Total Agencies Responding 47 100 Source: Survey results. Note: Percentages do not add to 100% due to rounding. The survey included a question asking for the reasons behind these ratings. The wide variety of responses received are shown for agencies rating their interactions as success- ful (Table 28) or neutral/unsuccessful (Table 29). Positives in Table 28 include good relationships with agencies that spe- cialize in dealing with individuals who are homeless, clear rules, effective enforcement, and not singling out people who are homeless. Responses reflect frustrations among transit agencies with limited resources and the seemingly intractable nature of the homelessness issue and its underlying factors. One of the “other” responses voiced a common theme: “We are doing a reasonable job with the available resources.” TABLE 28 REASONS FOR CHOOSING A SUCCESSFUL RATING Reason No. Agencies Responding % Agencies Responding Treatment and expectations of peo- ple who are homeless same as those of all customers 7 29 Good relationships with social ser- vice/nonprofit agencies and cities 4 17 Limitations on resources available 4 17 Not a problem/only isolated incidents 3 13 Societal issues bigger than transit 2 8 Passes for homeless or low-income persons enhance mobility 2 8 Able to defuse threatening situations 2 8 Clear, consistent rules for riding 2 8 Refusal to seek help 2 8 Success in linking individuals with assistance 2 8 Success with enforcement 2 8 Other 6 25 Total Agencies Responding 24 100 Source: Survey results. Note: Multiple responses allowed; percentages do not add to 100%. Table 30 summarizes the responses to an open-ended ques- tion on the primary benefits of these efforts. The most-cited benefit was the ability to connect those in need with services that can help them; these respondents had formed partnerships with social service agencies. Impacts on customers and the transit environment, improved (less adversarial) interactions with people who are homeless, and effective enforcement were other benefits mentioned by at least 10% of respondents. Table 31 summarizes the responses to an open-ended question on the drawbacks of efforts to interact with people who are homeless. The most frequently mentioned drawback was insufficient resources at both the transit agency and social service agencies. Other drawbacks cited by at least

21 TABLE 31 DRAWBACKS OF EFFORTS TO INTERACT WITH PEOPLE WHO ARE HOMELESS Drawback No. Agencies Responding % Agencies Responding Funding/insufficient resources 9 27 Homeless person’s appearance/per- sonal hygiene/unwillingness to accept help 8 24 Temporary fix; does not address underlying issues 6 18 None 5 15 Impact on customers/discourages ridership 3 9 Time involved 3 9 Perception that transit agency is the problem or encourages home- less to ride 2 6 Lack of support or inconsistent efforts by local governments 2 6 Safety/security issues 2 6 Total Agencies Responding 33 100 Source: Survey results. Note: Multiple responses allowed; percentages do not add to 100%. Table 32 lists the most successful (as defined by the respondents) actions taken. Partnerships/outreach leads the list, followed by consistent enforcement, training for agency staff (especially frontline staff), and fare policies (includ- ing low-income passes, reduced-price passes for social ser- vice agencies, and elimination of free fares). Eleven of the 15 agencies (73%) that identified partnerships/outreach as the most successful action taken rated their overall efforts as successful, compared with 55% of all agencies that rated their overall efforts as successful or very successful. TABLE 32 THE MOST SUCCESSFUL ACTIONS TAKEN Action No. Agencies Responding % Agencies Responding Partnerships/outreach 15 48 Consistent enforcement 5 16 Fare policies 3 10 Training for agency staff 3 10 Banning passengers for multiple offenses 2 6 Clear procedures 2 6 Enhanced maintenance 1 3 Total Agencies Responding 31 100 Source: Survey results. Note: Percentages do not add to 100% due to rounding. The following are some of the specific successful actions reported by respondents: 10% of respondents included aspects of the homeless popu- lation (appearance, personal hygiene, and unwillingness or inability to accept help) and the difficulty of addressing issues underlying homelessness. Fifteen percent of respon- dents stated that there were no drawbacks to their efforts. Two agencies noted that their efforts created a perception that the transit agency was somehow part of the problem. TABLE 29 REASONS FOR CHOOSING A NEUTRAL OR UNSUCCESSFUL RATING Reason No. Agencies Responding % Agencies Responding Not a problem/only isolated incidents 4 24 Good relationships with social ser- vice/nonprofit agencies and cities 3 18 Disruptive behavior continues 3 18 Limitations on resources available 2 12 Hygiene issues very difficult to address 2 12 Temporary fixes less effective in long term 2 12 Other 5 29 Total Agencies Responding 17 100 Source: Survey results. Note: Multiple responses allowed; percentages do not add to 100%. TABLE 30 PRIMARY BENEFITS OF EFFORTS TO INTERACT WITH PEOPLE WHO ARE HOMELESS Benefit No. Agencies Responding % Agencies Responding Connect those in need with services 11 30 Customer comfort, safety, and understanding 7 19 Pleasant environment/more user-friendly transit system 5 14 Improved interactions with people who are homeless 5 14 Effective enforcement 4 11 Clear customer expectations 3 8 Relationships with social service agencies 3 8 Everyone treated fairly 2 5 Operators feel they are supported 2 5 Unknown 2 5 Clear understanding of city’s obligations 1 3 Nothing can be done about hygiene, but other factors have improved 1 3 Reduction in incidents 1 3 Short-term solutions 1 3 Total Agencies Responding 37 100 Source: Survey results. Note: Multiple responses allowed; percentages do not add to 100%

22 • Our collaboration with the university students/social workers for outreach, the county-issued pass to partici- pants in case-managed services, and our Good Karma Bike partnership have all been great. Through our col- laborations, we have been able to help needy customers connect with services/support. • Project Homeless Connect provides free access to dental, pet care, haircuts— anything thing a person living on the street might need at one place on a spe- cific day. Agency workers make contact and can begin to follow up and try to place the homeless person in appropriate housing. • We support a local homeless emergency housing proj- ect whereby homeless are sheltered during extreme cold. The transit agency provides free rides to the cen- ters and supplies day passes for the following day when these folks leave the shelters. I think the homeless who participate in this program recognize the part the tran- sit agency plays in keeping them safe. • Homeless hearings are held in our space across from the homeless court, and the shelter has allowed us to gain more compliance from the homeless and mentally ill. • Specific action plans designed for an individual espe- cially when other branches of the agency and neces- sary community resources assist. When we tailor our activity to deal with the needs of one person and we focus several people or resources on those tasks there is always some level of success. • Initially, development of an outreach program with professional outreach workers. More recently, partner- ing with the city to increase outreach capabilities. • The partnership with the coalition whereby we are seen as a community partner and part of the solution. We can act to bring folks together to combat a community problem. • Increased presence of supervisors, police, and security personnel. This has ensured that our facilities remain clean and customers feel safe. • Discounts for social service agencies for transit tickets and passes. The homeless have access to our system, and this is often necessary if they are to improve their situation. For example, they can use our system to get to a job interview. For the agency, we get more rider- ship and we provide benefit to the community, which are measures of our success. • Operator training on how to interact with customers has been very successful. This includes training on how to de-escalate confrontations. We do refresher training for each operator, which requires 8 hours each year (specified in union contract). • Banning passengers for multiple offenses. Operators become more involved when they believe they have some support. • Keeping everything clean. If it is allowed to stay dirty, then that is what people will expect and they will treat it as such. Table 33 shows that a slight majority of respondents assess the balance between positive and punitive actions as appropriate. However, 44% report that more positive actions would be helpful. TABLE 33 BALANCE BETWEEN POSITIVE AND PUNITIVE ACTIONS Balance No. Agencies Responding % Agencies Responding Current balance is about right 22 51 Could use more positive actions (such as vouchers for services, partnerships with other agencies, etc.) 19 44 Could use more enforcement 2 5 Total Agencies Responding 43 100 Source: Survey results. Respondents were asked, “If you could change ONE aspect in the process of your agency’s interactions with people who are homeless, what would you change?” Table 34 summarizes the results. Strengthened partnerships with social service and nonprofit agencies and internal training programs were most frequently mentioned. Sixteen percent of respondents would not change anything. TABLE 34 ONE CHANGE IN THE PROCESS OF TRANSIT AGENCY INTERACTIONS WITH PEOPLE WHO ARE HOMELESS Change No. Agencies Responding % Agencies Responding Stronger partnerships/improved commu- nication with social service and non- profit agencies 11 30 No changes 6 16 Training and awareness among agency managers and staff 4 11 Ability to act when people who are homeless refuse help or trespass 3 8 More resources 2 5 Transit agency takes the lead in its role as mobility provider 2 5 Overcoming passenger discomfort/ addressing hygiene issues 2 5 Extended hours for emergency shelters/ other places for people who are home- less to congregate 2 5 Clear policies on inappropriate behavior and reinstatement of riding privileges 2 5 Build and maintain public restrooms 1 3 Central clearinghouse for agency- distributed passes 1 3 Greater understanding of transit’s needs 1 3 Total Agencies Responding 37 100 Source: Survey results. Note: Percentages do not add to 100% due to rounding.

23 LESSONS LEARNED Lessons learned that would benefit other agencies are shown in Table 35. Consistent enforcement and partnerships with agencies that work with people who are homeless are very helpful. Respondents reported that consistent and ongoing community outreach to individuals who are homeless yields benefits that are worth the time and resources. Training frontline staff in conflict resolution and in treating all cus- tomers, including the homeless, with respect is important, along with hiring “the right staff” and establishing a dia- logue across departments within the agency. TABLE 35 LESSONS LEARNED Lessons Learned No. Agencies Responding % Agencies Responding Consistent enforcement 7 22 Work with homeless agencies and community leaders 7 22 Commit resources to outreach to people who are homeless 5 16 Respect the humanity of individuals who are homeless 4 13 Training/hiring/internal discussion 4 13 None/still learning 4 13 No free fares 2 6 Efforts to reconstruct a safer and more secure transit facility can be viewed with hostility by anti- development activists 1 3 Total Agencies Responding 32 100 Source: Survey results. Note: Multiple responses allowed; percentages do not add to 100%. Lessons learned (reported verbatim except for minor grammatical changes) are presented by category. Consistent Enforcement • Enforcing a code of conduct is of major importance in order to provide a safe environment for the traveling public. • Be consistent with application and enforcement of rules of conduct on buses and at facilities. Homeless does not mean stupid or ignorant, and we should not presume to think they will tolerate an overly zealous application of the rules any more than any other customer. Partner with local law enforcement. You can’t manage this alone. • Need to be firm and consistent with interactions. • Keep the encampment clear at all times; do not let them stay. • Coordination with various city law enforcement agencies. Homelessness is a seasonal issue; be prepared to implement your plan. As mayors change, hopefully there is enough continuity in senior management at the transit agency. • Assess and understand gateway crimes and understand the ramifications if those gateway crimes (such as loi- tering, urinating, trespassing, littering, and open con- tainers) are not addressed. • Being sure the transit agency has regular interactions and provides good information regarding the transit system’s expectations is very helpful. Partnerships with Homeless Agencies and Community Leaders • The goal is to successfully get homeless folks the help that they need immediately. • Working with the homeless agencies has assisted us in removing some homeless from the buses during cold weather. • Encourage dialogue with city/county agencies that have resources to address the issue. These are hard to find and, unless there is a champion among the local elected officials, it is difficult to have any traction on resolving the issues that are created by the homeless population. • Partner with community leaders who can have a posi- tive impact. • Regularly interacting with your city’s human rights organizations. Our city has a commission that is part of the city’s structure, and sometimes they only hear from folks who feel disenfranchised. • Positive interactions garner greater results than just enforcement. Enforcement is a short-term and tempo- rary solution at best. Elevate the issue to government and nongovernment organizational bodies that can have an impact on the problem as a whole. Share as much information as possible with other stakeholders who might be able to effect change in the community. • Develop a positive and consistent relationship with resources, outreach services, and the court system (men- tal health court, alcohol or drug court, veterans’ court). Commit Resources to Outreach to People Who Are Homeless • There is a definite benefit in committing full-time resources to assist homeless and mentally ill people. The time expended on intervention and prevention pays off exponentially, and success is always depen- dent on knowledge and relationships built over time. • Community outreach is worth the time and resources. • Willingness to fund a robust outreach program has been critical in our city. Because parts of the system provide warmth in the winter and air conditioning in the summer, and it is open 24/7, it becomes a de facto shelter to many of the city’s less fortunate residents. Dedicated outreach teams who get to know the clients and establish relationships can often be successful in getting these individuals, who may initially be service- resistant, to accept services.

24 • It takes patience and endurance. You have to keep doing the right thing. • Be patient and empathetic with the homeless and make it clear that you are here to help them as well. Respect the Humanity of Individuals Who Are Homeless • Years ago we had a poor experience with a homeless man named Val. For years he would sit on the side of the road across from our downtown platforms and cuss and swear at the transit police officers, until one day an officer went over to him and chatted him up and eventually took him to lunch. We learned that Val had been an alcoholic before, he was sober now. He had held a job as the head of facilities for a local school district and was on a pension. We changed our view of Val and he followed suit; he is now one of our cheer- leaders in the homeless community. Our officers, dem- onstrating their compassion for him, have kept in him in winter clothing and gear for the past several years. He is too proud to stay at the shelter or even with fam- ily. We see him almost every day near our main police headquarters. • Respect the humanity of the person, look for ways to connect them to appropriate resources, and always keep safety first. • When our agency staff treats homeless persons with respect, customers get the message that they are not violent or unwanted, and in turn, the customers do not disrespect homeless persons riding on our system, for the most part. • We sort of operate with a soft hand, given that our issue is not a major one when it comes to homeless. Training/Hiring/Internal Discussion • Operator and supervisor training for working and interacting with customers. • We have recently provided mental health training and refresher training of operators and support staff. • Hiring the right staff to deal with homeless concerns. • Keep senior management aware of issues related to homeless people that impact transit. None/Still Learning • Difficult to say. • None • Haven’t had any significant incidents that have gener- ated lessons learned. • We’re still learning. No Free Fares • Charge fares. • Free fares will exacerbate any potential problems. Other • Even projects to improve safety and reduce crime can be viewed with hostility by anti-development activists. SUMMARY This chapter has described transit agency assessments of the actions they have taken to improve their interaction with peo- ple who are homeless. Key findings include the following: • Assessments of the success of actions taken are neu- tral to positive. Most respondents (53%) rate their actions as “somewhat successful” and 40% rate their actions as “neutral.” • Reasons for these ratings varied. On the positive side, respondents reported good relationships with agencies that specialize in dealing with individuals who are homeless, clear rules, effective enforcement, and a focus on behavior as opposed to social status. Respondents were frustrated by limited resources and the seemingly intractable nature of the “homelessness issue” and the underlying factors. One response sum- marized a common theme: “We are doing a reasonable job with the available resources.” • The primary benefits of these actions are connecting those in need with services and enhancing customer comfort, safety, and understanding. Other benefits include a pleasant environment for transit, improved interactions with people who are homeless, effective enforcement, clear customer expectations, relation- ships with social service agencies, fair treatment for all customers, and bus operators who feel supported by the transit agency. • The major drawbacks of these actions are insuffi- cient resources, aspects of the homeless population (personal hygiene, unwillingness to accept assis- tance), and the difficulty in addressing the issues underlying homelessness. Insufficient resources were seen at both the transit agency and social service agen- cies. Fifteen percent of respondents reported no draw- backs to their efforts. • Partnerships and outreach were most frequently mentioned as successful actions, followed by consis- tent enforcement, training for agency staff (especially frontline staff), and fare policies (including low- income passes, reduced-price passes for social service agencies, and elimination of free fares). • Strengthened partnerships with social service and nonprofit agencies and internal training programs were most frequently mentioned in response to the question “If you could change ONE aspect in the pro- cess of your agency’s interactions with people who are homeless, what would you change?” Sixteen percent of respondents would not change any aspect of their efforts.

25 conflict resolution and in treating all customers, includ- ing the homeless, with respect is important, along with hiring the right staff and establishing a dialogue across departments within the agency. • Lessons learned emphasized consistent enforcement and partnerships with agencies that work with people who are homeless. Respondents reported that ongoing community outreach to individuals who are homeless is worth the time and resources. Training frontline staff in