State of the Homeless 2009...State of the Homeless 2009 Overview A Proven Way to Reduce Family...
Transcript of State of the Homeless 2009...State of the Homeless 2009 Overview A Proven Way to Reduce Family...
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Coalition for the Homeless
State of the Homeless 2009:A Proven Way to Reduce Family Homelessness
During the Economic Recession
April 23, 2009
Coalition for the Homeless 129 Fulton Street New York NY 10038 212-776-2000 www.coalitionforthehomeless.org
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State of the Homeless 2009Overview
A Proven Way to Reduce Family Homelessness During the Economic Recession
PART I: Rising New York City Homelessness and the Economic Recession
>> page 3
PART II: Restoring Priority for Federal Housing Aid to Homeless New Yorkers
>> page 12
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State of the Homeless 2009Part I: Rising NYC Homelessness
NYC Homeless Population Rising Amidst RecessionCurrently more than 36,000 homeless people sleeping each night
in the NYC municipal shelter system.
Record number of NYC homeless families: More than 9,600 families with 15,500 homeless children.
Since June the NYC homeless shelter population has risen by 9 percent, and the number of families has risen by 12 percent.
Last year nearly 110,000 New Yorkers slept in municipal shelters at some point – 32 percent more than six years ago.
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State of the Homeless 2009Rising Homeless Shelter Population
New York City: Census of Homeless People in the Municipal Shelter System, 1983-2009
10,000
15,000
20,000
25,000
30,000
35,000
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009Av
erag
e D
aily
Cen
sus
of H
omel
ess
Adul
ts a
nd C
hild
ren
Res
idin
g in
the
Mun
icip
al
She
lter S
yste
m
Source: New York City Department of Homeless Services and Human Resources Administration, shelter census reports
February 2009 Shelter Census:
36,298
March 1987Shelter Census:
28,737
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State of the Homeless 2009Rising Homeless Shelter Population
New York City: Census of Homeless People in the Municipal Shelter System, February 2009
15,465
13,856
6,977
Children
Adults in Families
Single AdultsNote: Number of homeless single adults, homeless children, and homeless adult family members, residing in the municipal shelter system.Source: New York City Department of Homeless Services, shelter census reports
Total NYC Municipal Shelter
Population: 36,298
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State of the Homeless 2009More New Yorkers Use Homeless Shelters
32 Percent More New Yorkers Used Municipal Shelters in FY 2008 Compared to FY 2002
82,808
95,388
104,028
98,239 96,612102,187
109,314
60,000
70,000
80,000
90,000
100,000
110,000
FY 2002 FY 2003 FY 2004 FY 2005 FY 2006 FY 2007 FY 2008Tota
l Und
uplic
ated
Num
ber o
f Ind
ivid
uals
Who
Res
ided
in M
unic
ipal
She
lters
Source: NYC Department of Homeless Services, Critical Activities Reports
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State of the Homeless 2009Record Family Homelessness
Record Number of Homeless Families in New York CityAt the end of November 2008, there were 9,720 homeless families
sleeping in NYC municipal shelters – highest number since the City of New York began reporting this data more than 25 years ago.
Since June, the number of homeless families in New York City shelters has risen by 12 percent.
In recent months the number of new homeless families entering municipal shelters has reached all-time record levels.
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State of the Homeless 2009Record Family Homelessness
Causes of Rising Family Homelessness in New York CityAccelerating job losses: Many low-income households falling
behind on the rent and facing eviction; City has cut back on homelessness prevention services.¹
Widening housing affordability gap: NYC continues to lose low-cost housing; between 2005 and 2008, loss of nearly 55,000 apartments with rents below $800/month (7.5 percent loss).
Flawed City policies: Bloomberg administration cut off homelessNew Yorkers from Federal housing assistance.
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State of the Homeless 2009Increasing Number of Homeless Families
Number of Homeless Families in the New York City Shelter System, 1983-2008
0
1,000
2,000
3,000
4,000
5,000
6,000
7,000
8,000
9,000
10,000
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
Num
ber o
f Hom
eles
s Fa
milie
s R
esid
ing
in th
e M
unic
ipal
She
lter S
yste
m o
n th
e La
st N
ight
of E
ach
Mon
th
Source: New York City Department of Homeless Services and Human Resources Administration, shelter census reports
November 2008 Homeless Families:
9,720
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Page 10
State of the Homeless 2009New Homeless Families
Number of New Homeless Families Entering the NYC Shelter System Each Month, 1984-2008
0
200
400
600
800
1,000
1,200
1,400
1,600
JAN
198
4
OC
T 19
84
JUL
1985
APR
198
6
JAN
198
7
OC
T 19
87
JUL
1988
APR
198
9
JAN
199
0
OC
T 19
90
JUL
1991
APR
199
2
JAN
199
3
OC
T 19
93
JUL
1994
APR
199
5
JAN
199
6
OC
T 19
96
JUL
1997
APR
199
8
JAN
199
9
OC
T 19
99
JUL
2000
APR
200
1
JAN
200
2
OC
T 20
02
JUL
2003
APR
200
4
JAN
200
5
OC
T 20
05
JUL
2006
APR
200
7
JAN
200
8
OC
T 20
08
Num
ber o
f new
hom
eles
s fa
mili
es (n
ew to
she
lter s
yste
m o
r ret
urni
ng a
fter
mor
e th
an 3
0 da
ys) w
ho e
nter
ed th
e N
YC
she
lter s
yste
m e
ach
mon
th
July-November 2008 New Homeless Families:
1,300+ Families Per Month
Source: NYC Department of Homeless Services, "Emergency Housing for Homeless Families Monthly Report," 1984-2008
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State of the Homeless 2009Accelerating Loss of Affordable Housing
New York City: Loss of Affordable Rental Apartments, 2005-2008
-80,284
-54,920
-90,000
-80,000
-70,000
-60,000
-50,000
-40,000
-30,000
-20,000
-10,000
0
Less than $1,000/month Less than $800/month
Cha
nge
in th
e N
umbe
r of A
partm
ents
by
Mon
thly
Con
tract
Ren
t
Source: U.S. Census Bureau, 2008 Housing and Vacancy Survey (Initial Findings)
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Page 12
State of the Homeless 2009Part II: A Proven Solution
Because of Economic Downturn, We Must Act Now
>> During the last two economic recessions (early 1990’s and 2001-2002), New York City experienced significant increases in homelessness.
>> Building on a wealth of research and experience, NYC can implement proven solutions to help homeless families and individuals move successfully from shelters to permanent housing.
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State of the Homeless 2009Rising Homeless Shelter Population
Increasing NYC Homeless Shelter Population During Economic Recessions
10,000
15,000
20,000
25,000
30,000
35,000
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009Av
erag
e D
aily
Cen
sus
of H
omel
ess
Adul
ts a
nd C
hild
ren
Res
idin
g in
the
Mun
icip
al
She
lter S
yste
m
Source: New York City Department of Homeless Services and Human Resources Administration, shelter census reports
Early 1990's Recession
2001-2002 Recession
CurrentRecession
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State of the Homeless 2009Reducing Family Homelessness
One Proven Solution to Reduce Family Homelessness:Federal Housing Assistance
>> Research and experience show that Federal housing programs – Section 8 vouchers and public housing –successfully reduce family homelessness.
>> However, since 2005 Bloomberg administration has cut off homeless families from a longstanding priority for Federal housing assistance.
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State of the Homeless 2009Flawed Bloomberg Administration Policy
Cutting Off the Homeless from Federal Housing Aid
>> Beginning in 2005, the Bloomberg administration dramatically changed 20 years of City policy – cutting off homeless from priority for Federal housing programs including Section 8 vouchers and public housing.²
>> In 2009, the City of New York will provide more than 12,000 new Section 8 vouchers and at least 5,000 public housing apartments to low-income NYC families – but virtually none to the homeless.
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State of the Homeless 2009Flawed Bloomberg Administration Policy
Replacing Proven Federal Housing Programs
>> The Bloomberg administration replaced proven Federal housing programs with untested, controversial, time-limited subsidy programs. The deeply flawed “Housing Stability Plus” program (2005-2007) was abandoned as a failure.
>> The current “Work Advantage” program – with time limits of two years – began in 2007. The first group of time-limited families will run out of assistance this year.
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State of the Homeless 2009Homeless Cut Off from Federal Housing Aid
Homeless Families Moved from NYC Shelters with Federal Housing Programs, FY 1990-FY 20082,
183
2,01
0
2,74
3 3,20
2
4,04
2
2,85
7
3,53
7
3,64
6
3,53
0
3,03
5 3,41
8
2,85
2
2,88
0
3,97
5
5,77
7
3,56
2
758
503
474
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1,000
2,000
3,000
4,000
5,000
6,000
FY1990
FY1991
FY1992
FY1993
FY1994
FY1995
FY1996
FY1997
FY1998
FY1999
FY2000
FY2001
FY2002
FY2003
FY2004
FY2005
FY2006
FY2007
FY2008N
umbe
r of H
omel
ess
Fam
ilies
Mov
ed fr
om M
unic
ipal
She
ltrs
with
Sec
tion
8 V
ouch
ers
and
Pub
lic H
ousi
ng
Source: City of New York, Mayor's Management Reports, and NYC Department of Homeless Services, Critical Activities
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State of the Homeless 2009Homeless Cut Off from Federal Housing Aid
Shifting Bloomberg Administration Policies on Federal Housing Aid for Homeless Families
6,500
7,000
7,500
8,000
8,500
9,000
9,500
10,000
JAN
200
2
APR
200
2
JUL
2002
OC
T 20
02
JAN
200
3
APR
200
3
JUL
2003
OC
T 20
03
JAN
200
4
APR
200
4
JUL
2004
OC
T 20
04
JAN
200
5
APR
200
5
JUL
2005
OC
T 20
05
JAN
200
6
APR
200
6
JUL
2006
OC
T 20
06
JAN
200
7
APR
200
7
JUL
2007
OC
T 20
07
JAN
200
8
APR
200
8
JUL
2008
OC
T 20
08
Num
ber o
f Hom
eles
s Fa
mili
es in
Mun
icip
al S
helte
r Sys
tem
at E
nd o
f Mon
th
2003-2005: City Targets Federal Housing Vouchers to Homeless,
Leading to Decline in Family Homelessness
2005: City Cuts Off Homeless Families
from Federal Housing Programs, Triggering
Rise in Family Homelessness
2008: Economic Downturn Drives More Homeless Families into Shelters
Source: NYC Department of Homeless Services, "Emergency Housing Services for Homeless Families Monthly Report"
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State of the Homeless 2009A Proven Solution
Research Evidence on Federal Housing Programs and Reductions in Family Homelessness
>> Studies by NYU, UPenn, Columbia University, Vera Institute, and HUD researchers show housing vouchers successfully help move homeless families from shelters and help them retain housing.
>> Section 8 vouchers and public housing are less costly than emergency shelter – cost to shelter a homeless NYC family is $36,000/year.
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State of the Homeless 2009A Proven Solution
Experts on Federal Housing Programs and Reductions in Family Homelessness:“Formerly homeless families are generally quite similar to other low-income families. Homelessness for most is not a protracted experience, and housing subsidies alone are sufficient to allow the vast majority to leave shelter and maintain stable housing in the community.”– Marybeth Shinn (2009), Vanderbilt University, research review prepared for Enterprise Foundation and the National Alliance to End Homelessness
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State of the Homeless 2009A Proven Solution
Experts on Federal Housing Programs and Reductions in Family Homelessness:“An extensive body of careful research has demonstrated that housing vouchers are critically important both for preventing families with children from becoming homeless and for helping those who do enter the shelter system to leave it for permanent housing and not become homeless again….For families who do become homeless, housing vouchers are an extensively tested and demonstrably effective tool for moving to permanent housing and remaining stably housed.”– Jill Khadduri (2008), Abt Associates and former senior HUD official, research review prepared for Homelessness Research Institute
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State of the Homeless 2009A Proven Solution
Experts on Federal Housing Programs and Reductions in Family Homelessness:“The [HUD] Voucher Family Study found that voucher assistance resulted in a 74 percent reduction in the incidence of homelessness…. ‘Many of the women interviewed said that receiving a voucher substantially reduced their anxiety about keeping a roof over their children’s heads. They expressed a strong sense of relief at not having to worry about how to pay the rent or whether their family would end up homeless or living with friends or relatives.’”– Jill Khadduri (2008), Abt Associates and former senior HUD official, summarizing the 2007 HUD Voucher Family Study
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State of the Homeless 2009A Proven Solution
Experts on Federal Housing Programs and Reductions in Family Homelessness:“We found that subsidized housing succeeds in curing homelessness among families, regardless of behavioral disorders or other conditions. Whatever their problems – substance abuse, mental illness, physical illness or a history of incarceration –nearly all of the families in our study became stably housed when they received subsidized housing.”– Marybeth Shinn and Beth Weitzman (1998), New York University, five-year study of 564 homeless and low-income families
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State of the Homeless 2009A Proven Solution
Experts on Federal Housing Programs and Reductions in Family Homelessness:“The rate of re-entry is highest among families who were discharged to their own housing (37%) and lowest among those who were discharged to subsidized housing (7.6%)….[O]ur data clearly indicate that having obtained subsidized housing is linked with a substantially lower rate of readmission to the Family Shelter System, a finding which has been consistently reported in previous research.”– Yin-Ling Irene Wong, Dennis Culhane, and Randall Kuhn (1997), University of Pennsylvania, study of eight years of data from the NYC homeless families client database to analyze rates of return to shelter
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State of the Homeless 2009A Proven Solution
Experts on Federal Housing Programs and Reductions in Family Homelessness:“Across all cohorts and follow-up periods, those families exiting to subsidized housing exhibited the lowest rates of reentry. Subsidized housing appears to be associated with better protection against shelter return than exiting to one’s own housing, other destinations, or unknown arrangements.”– Vera Institute (2005), study commissioned by NYC Department of Homeless Services analyzing rates of return to shelter for formerly-homeless families
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State of the Homeless 2009A Proven Solution
Experts on Federal Housing Programs and Reductions in Family Homelessness:“Shelter population rose during the boom because the city slowed the rate at which it moved families into subsidized housing and it continued to rise after the boom because there was a recession. The population fell when the city stepped up placements into subsidized housing and the recession ended.”– Brendan O’Flaherty and Ting Wu (2006), Columbia University, study of rise and fall in NYC family homelessness from 1997 to 2004
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State of the Homeless 2009Debunking the Myths
Myth #1: The “Inducement” Myth
>> Bloomberg administration officials claim availability of Federal housing aid “induces” families to seek shelter.³
>> However, since Bloomberg administration cut off homeless families from Federal housing aid, the number of homeless families entering shelter has actually increased – and hit an all-time record level this past year.
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State of the Homeless 2009Debunking the Myths
Average Number of New Homeless Families Entering the NYC Shelter System Each Month, 2002-2008
981
889
970
840
985
1,038
1,196
700
750
800
850
900
950
1,000
1,050
1,100
1,150
1,200
2002 2003 2004 2005 2006 2007 2008Ave
rage
Num
ber o
f New
Hom
eles
s Fa
milie
s En
terin
g M
unic
ipal
She
lter S
yste
m
Each
Mon
th
Source: New York City Department of Homeless Services, "Emergency Housing Services for Homeless Families Monthly Report"
2005: City Cuts Off Homeless Families from Federal Housing Aid, Claiming Fewer Families
Will Enter Shelter Sytem
2006-2008: Number of New Homeless Families Entering
Shelters Reaches Record Levels
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State of the Homeless 2009Debunking the Myths
Myth #1: The “Inducement” Myth
>> Bloomberg administration officials claim availability of Federal housing aid “induces” families to seek shelter –but have never offered empirical evidence for this claim.³
>> Studies by three economists of the “inducement”claim show minimal effect – but prove that cutting off homeless families from Federal housing programs ultimately increases family shelter population.
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State of the Homeless 2009Debunking the Myths
Myth #1: Experts on the “Inducement” Myth“Placements into subsidized housing do not seem to lure large numbers of families into the shelter system…. The city now devotes enormous resources to determining eligibility. We believe that the city has been successful; fewer families appear to be drawn by the prospect of obtaining permanent subsidized housing.”– Brendan O’Flaherty and Ting Wu (2006), Columbia University, study of rise and fall in NYC family homelessness from 1997 to 2004
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State of the Homeless 2009Debunking the Myths
Myth #1: Experts on the “Inducement” Myth“We test the conventional wisdom and reject it. Better prospectsof subsidized housing increase flows into the shelter system, but this incentive effect is not nearly large enough to offset the first order accounting effect – taking families out of the shelters reduces the number of families in them.”– Brendan O’Flaherty and Michael Cragg (1997), Columbia University and MilkenInstitute, study of the Dinkins administration’s “Alternative Pathways” program from the early 1990’s which re-directed Federal housing vouchers away from homeless families in shelters
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Page 32
State of the Homeless 2009Debunking the Myths
Myth #2: The Myth of Time-Limited Subsidies
>> Bloomberg administration officials claim that time-limited rent subsidies, like its two-year “Work Advantage”program, are effective.
>> However, there is absolutely no research evidence to show that time-limited rent subsidies are effective –particularly in high-cost housing markets like NYC.
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Page 33
State of the Homeless 2009Debunking the Myths
Myth #2: The Myth of Time-Limited Subsidies
>> Over the coming year, more than 1,400 formerly-homeless families will reach the two-year time limit for “Work Advantage” assistance. Hundreds more will reach the time limit for “Housing Stability Plus” assistance.
>> Bloomberg administration officials have no plan in place to assist formerly-homeless families who reach time limits and are still in need of housing assistance.
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State of the Homeless 2009Debunking the Myths
Myth #3: The Eligibility Myth
>> Bloomberg administration officials claim that many homeless families (approximately 30-to-40 percent) are not eligible for Federal housing vouchers.
>> However, far fewer homeless families are eligible for the Bloomberg administration’s “Work Advantage” two-year subsidy – fewer than one in three homeless families has the employment income to qualify for that program.
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State of the Homeless 2009Debunking the Myths
Myth #4: The “Length-of-Stay” Myth
>> Bloomberg administration officials claim that processing Federal housing vouchers is slow and leads to longer shelter stays.
>> However, family shelter stays were far shorter in the 1990’s – when the City prioritized homeless families for Federal housing assistance – than in the current decade. In 2008 the average shelter stay for homeless families was nearly 11 months.
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State of the Homeless 2009Debunking the Myths
Average Number of Days Homeless Families Reside in Municipal Shelters, 1984-2008
187
314
390
393
362
253
152
159 17
8 205
199 21
6 238
297
277
268 2
98
325
298 3
25 338 3
51
330 34
2
324
-
50
100
150
200
250
300
350
400
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008Av
erag
e N
umbe
r of D
ays
Hom
eles
s Fa
milie
s R
esid
e in
Mun
icip
al S
helte
r Sys
tem
Source: New York City Department of Homeless Services and Human Resources Administration, shelter census reports
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Page 37
State of the Homeless 2009Need for Immediate Action
Conclusion: Target Federal Housing Aid to the Homeless>> Federal housing programs are a proven, cost-effective way of reducing family homelessness.
>> Emergency shelter for homeless families costs $36,000/year –half the cost is paid by City and State.
>> Thus, targeting Federal housing aid to homeless families willreduce the family shelter population and save City and State taxpayer dollars – a high priority given the fiscal crisis.
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Page 38
State of the Homeless 2009Need for Immediate Action
Conclusion: Target Federal Housing Aid to the Homeless>> Given the worsening economic downturn, it is more urgent thanever to stem the tide of rising family homelessness – and Federal housing programs are a proven way to do that.
>> The NYC Congressional delegation is leading the fight in Congress for more funding for Section 8 vouchers and public housing.
>> Reversing the City’s misguided policy will reduce family homelessness and reduce emergency shelter expenses.
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Page 39
State of the Homeless 2009References
References¹In the FY 2009 City budget, Mayor Bloomberg and the New York City Council reduced funding for several homelessness prevention programs, including the “Homeless Prevention Fund” (50 percent cutback) and anti-eviction legal services.
²The Bloomberg administration implemented its policy in two stages: (1) First, in late 2004, it halted referrals by the NYC Department of Homeless Services of homeless families to the Section 8 and public housing waiting lists maintained by the New York City Housing Authority (NYCHA). (2) And second, in 2005 NYCHA reduced the priority classification for homeless families and individuals, who previously had been given the so-called “emergency priority” along with domestic violence survivors and other urgent cases. Thus, by the end of 2005 homeless New Yorkers were effectively cut off from receiving Federal housing assistance.
³See the following news articles quoting Bloomberg administration officials: “’We believe that in New York City there are many families who see that the only way to get rental assistance is to go through the shelter system,’ said [then-Department of Homeless Services Commissioner Linda] Gibbs….” (Newsday, October 20, 2004); "At the same time, [Linda] Gibbs said, families are deliberately going into the shelter system as a way to get to the front of the line on rental assistance.“ (New York Daily News, October 20, 2004); “[Linda Gibbs] said, the program was making poor families believe that the fastest road to getting their own apartment was to become homeless. ‘We don't want people to think that the best way to get housing is to bundle their children up and take them to the E.A.U.,’ she said referring to the Emergency Assistance Unit, the Bronx office that is the entry point for the city's shelter system.” (New York Times, October 20, 2004).
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Page 40
State of the Homeless 2009Research Studies
Research Studies Cited in This ReportCragg, Michael and Brendan O’Flaherty, “Does Subsidized Housing Increase Homelessness? Testing the Dinkins Deluge Hypothesis,” Milken Institute (June 1997)
Khadduri, Jill, “Housing Vouchers Are Critical for Ending Family Homelessness” (January 2008), Homelessness ReerchInstitute of the National Alliance to End Homelessness, available at http://www.endhomelessness.org/content/article/detail/1875.
O’Flaherty, Brendan and Ting Wu, “Fewer Subsidized Exits and a Recession: How New York City’s Family Homeless Shelter Population Became Immense,” Journal of Housing Economics (April 2006).
Shinn, Marybeth, “Ending Homelessness for Families: The Evidence for Affordable Housing,” Enterprise Foundation and National Alliance to End Homelessness (pre-publication release, 2009).
Shinn, Marybeth, Beth C. Weitzman, et al, “Predictors of Homelessness Among Families in New York City: From Shelter Request to Housing Stability,” American Journal of Public Health, Volume 88, Number 11 (November 1998), pp. 1651-1657.
Vera Institute, “Understanding Family Homelessness in New York City” (September 2005), available at http://www.vera.org/publication_pdf/315_584.pdf.
Wong, Yin-Ling Irene, Dennis Culhane and Randall Kuhn, “Predictors of Exit and Reentry Among Family Shelter users in New York City,” Social Science Review 71, Number 3 (1997), pp. 441-462.
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Page 41
State of the Homeless 2009Data Sources and Acknowledgments
Note on DataData on the homeless shelter population is from the NYC Department of Homeless Services’ shelter census reports, including “Emergency Housing Services for Homeless Families Monthly Report,” “Critical Activities Report,” and “Daily Report.” Note that the data on the municipal shelter population in this report includes shelters for homeless families and adults administered by the NYC Department of Homeless Services; shelters for homeless families administered by the NYC Department of Housing Preservation and Development (HPD), which is included in the “Emergency Housing Services”report mentioned above (currently there are approximately 250 families with 750 people in these shelters); and shelters for homeless veterans (which currently have approximately 240 individuals). This report does not include homeless adults in “safe haven” shelters (which currently have approximately 325 people each night). Note that the shelter population reported on the NYC Department of Homeless Services website’s home page does not include data on shelters for veterans, “safe havens,” and HPD shelters for homeless families, and thus presents an incomplete picture of the New York City homeless shelter population.
As noted throughout the report, all other data used in this report is from the City of New York, Mayor’s Management Reports, and the U.S. Census Bureau, Housing and Vacancy Survey.
AcknowledgmentsReport prepared by Patrick Markee, Senior Policy Analyst, Coalition for the Homeless.
For more information, please visit www.coalitionforthehomeless.org.