The Dynamics of Family Homelessness in New York City

June 2019

I. Shelter Dynamics Shelter Dynamics in New York City

Shelter Dynamics in New York City examines the City’s shelter system— who is in shelters, why and how families are entering shelter, and the types of facilities in which families are being placed.

On July 1, 2018, there were over 12,000 families with children sleeping in a City-run shelter. Of the approximately 62,000 total individuals in shelter, 39% were children under the age of 18. Despite the City’s various initiatives to prevent, reduce, or end homelessness, the shelter system continues to be stretched beyond its capacity.

Although the Department of Homeless Services (DHS) is responsible for carrying out the City’s right to shelter policy, the reasons why families become homeless, or find and sustain permanent housing, are complex. The entrenched poverty many homeless families experience requires that they will continue to rely on public resources for a rent subsidy, healthcare, childcare, food, and other basic necessities even after they leave shelter.

This report includes the most recent data available. More current data have been requested from DHS. This tool will be updated as new data are provided.

1 Dynamics of Family Homelessness in NYC / Shelter Dynamics How Has the Number of Families in Shelter Changed Over Time?

Upward Trend in Number of Families and Children in Shelter

Children Ages 0–5 Children Ages 6–13 Children Ages 14–17 Number of Families Total Number of Children Total

* December 2018 is the last available month with breakdown of individuals in shelter by age. Source: New York City Department of Homeless Services, Critical Activities Report, FY 2003–FY 2011; New York City Department of Homeless Services, Daily Report, FY 2009–FY 2019; New York City Department of Homeless Services, DHS Data Dashboard Charts, FY 2012–FY 2019.

• The past decade has been marked by a • As of July 2018, children five and under were dramatic rise in family homelessness. After a the largest segment of children in shelter, period of relative stability from 2002 to 2011, the accounting for nearly 11,000 children. number of families with children in shelter has grown by nearly 55% from 2011 to 2018.

2 Dynamics of Family Homelessness in NYC / Shelter Dynamics How Many Children Are in Shelter?

Children Are the Largest Single Group of the Homeless: Two in Five Individuals in Shelter Are Children July 2018 Children • Despite their lack of visibility, families with Adults in Families children continue to be the largest segment Single Adults of the homeless population.

• From 2012 through 2018, children under 18 made up about 40% of individuals in shelter. Although single adults are frequently the 19,258 24,271 31% face of homelessness, they make up fewer Total Individuals 39% In Shelter: than one-third of all individuals in shelter. 62,119 Although single adults are frequently the face of homelessness, they make up fewer than one-third of all individuals in shelter. 18,590 30%

Source: New York City Department of Homeless Services, Local Law 37 Report, July 2018.

Is Shelter Capacity Sufficient in Each Neighborhood? Most Homeless Families Are Not Sheltered in the Communities They Come From. A Closer Look at Shelter Capacity, by Community District Most Homeless Families Are Not Sheltered in the Communities They Come From A Closer Look at Shelter Capacity, by Community District

Proportion of Citywide Homeless Families Sheltered in District Percent of Citywide Homeless B08 • The community district with the most 0.1% – 1.1% Most Homeless Families Are Not Sheltered in the CommunitiesB12 They Come From 1.2% – 2.5% FamiliesA Closer Look Shelteredat Shelter Capacity, in by District Community District B07 families entering shelter is East New York, 2.6% – 4.5%

4.6% – 8.5% Proportion of Citywide M12 B11 B05 Homeless Families Sheltered in DistrictNo Shelters B06 Brooklyn (K05), with over 650 families with B08 0.1%–1.1%0.1% – 1.1% Major Parks/Airports B04 B03B12 B10 1.2%–2.5%1.2% – 2.5% Number of Homeless Families B09 children entering the system in FY 2015 and With Last Known Address in District B02 2.6%–4.5%2.6% – 4.5% B07M10 4 – 102 M09 B01 441 shelter units available in the district in 4.6%–8.5%4.6% – 8.5% B11 103 – 233 M12 M11 B05 Q01 NoNo Shelters Shelters M07 B06 FY 2016. Residents of Bayside, Queens (Q11) 234 – 659 M08 Q07 MajorMajor Parks/Airports Parks and Airports Q01 B04 B03 B10 M04 B09 Q03 Q11 Number of Homeless Families M05 With Last Known Address in District were the least likely to enter shelter, with just B02 M10 M06B01 Q04 Most Homeless4 – 102 Families Are Not ShelteredM09 in the CommunitiesQ02 They Come From M02 5 homeless families hailing from Bayside in A Closer Look103 – at233 Shelter Capacity, by Community District Q06 Q08 M11 K01 Q01 M07 M03 Q05 Proportion of Citywide M01 FY 2015 and no shelter units in their district. Homeless Families234 – 659 Sheltered in District M08 Q07 Number of Homeless B08 Q01 Q13 K02 K04 Q09 0.1% – 1.1% Q12 M01 B12 K03 Q03 1.2% – 2.5% M04 Q11 Families with Last M05 K06 Q10 B07 K08 • With a shelter capacity of 1,200 family 2.6% – 4.5% K05 M06 K16 Q02 K09 Q04 Known4.6% – 8.5%Address K07 M12 B11 M02 B05 No Shelters B06 K17 units, Concourse/Highbridge in the Bronx in District Q06 Q08 K01 Major Parks/Airports K12 M03 B04 B03 Q05 M01 K14 B10 Number of Homeless Families K10 B09 (B04) had the highest proportion of NYC’s K18 With Last Known Address in District B02 M10 K11 Q13 B01 4–1024 – 102 M09K02 K04 Q09 K15 Q12 homeless families sheltered in the district. M01 K03 Q14 103–233103 – 233 M11 M07K06 Q01 K08 K13 Q10 Although families entered the shelter system 234–659234 – 659 M08 K16 K05 Q07 K09Q01 K07 Q14 M04 S01 Q03 Q11 from every community district, there were 12 M05 K17

S02 M06K12 Q02 Q04 Source: New York City Department of neighborhoods with no family shelter units. K10M02 K14 Q06 Q08 S03 K01 K18Homeless Services, unpublished data tabulated M03 K11 Q05 M01 by the Institute for Children, Poverty, and K15 • While the City’s plan is to increase capacity Q13 Q14 K02 K04 Homelessness,Q09 FY 2015–FY 2016. Q12 M01 K13 K03 in each neighborhood, there is no available K06 K08 Q10 K16 K05 Note: Most recent available dataK09 on families entering shelter disaggregated by data to either document or review the K07 Q14 S01 community district are from FY 2015.K17 Most recent data on where families are sheltered

are from FY 2016. K12 effectiveness of the City’s initiatives. S02 K10 K14 K18 K11 3 DynamicsS03 of Family Homelessness in NYC / Shelter Dynamics K15 Q14

K13

Q14 S01

S02

S03 Has NYC Succeeded in Placing Families in the Shelter Closest to the Youngest Child’s School? City’s Success in Placing Families Nearest to Their Original School Has Declined by 30 Percentage Points in Past Decade FY 2008–FY 2018

83%

50% Success Rate

Source: New York City Mayor’s Office of Operations, Mayor’s Management Report, FY 2008–FY 2018.

• DHS tries to place families in the shelter that is • In 2008, the City was able to place 83% of closest to their youngest school-aged child’s families in the facility closest to the original school address. Shelter locations and limited school of the youngest child. By 2018, that shelter capacity often prevent DHS from number declined to just 50%. accomplishing this goal.

4 Dynamics of Family Homelessness in NYC / Shelter Dynamics How Long Do Families Stay in Shelter?

Length of Stay Continues to Climb: Average Stay Increasing for All Household Types

Adult Families Families with Children Single Adults

2011 2012 2013 2014 2015 2016 2017 2018 2019

Note: Living in Communities Rental Assistance Programs (LINC) assisted families in the NYC shelter system with moving into stable housing. CITYFEPS helped eligible families with children at risk of homelessness and those already in shelter to secure permanent housing. Special One-Time Assistance Program (SOTA) covers the first year of rent for working families to move out of shelter.

Source: New York City Department of Homeless Services, Local Law 37 Report, September 2011–April 2019.

• Families with children typically are homeless • The length of shelter stay for families has for longer periods of time than single adults. increased by over 40% from September 2011 As of April 2019, the average length of stay to April 2019. for a family with children was 449 days, or over 14 months. Previous declines in this average have tended to coincide with major policy shifts or new initiatives designed to place families into private housing using temporary rental assistance.

5 Dynamics of Family Homelessness in NYC / Shelter Dynamics How Many Times Do Families Apply for Shelter?

One in Four Families in Shelter Have Applied More Than Twice April 2019

6 or More Applications 1 Application 5 Applications 4% 54% 4 Applications 3% 6%

3 Applications 11% • Nearly half of all families (46%) that were Families with Children deemed eligible for entry into the DHS shelter Found Eligible for Shelter: system had to submit more than one application 855 to be admitted.

• These numbers suggest that families that do 2 Applications in fact meet eligibility requirements are being 22% denied from shelter.

Note: This chart shows the number of applications submitted by families in the 90 days prior to being deemed eligible for shelter in April 2019.

Source: New York City Department of Homeless Services, Local Law 37 Report, April 2019

6 Dynamics of Family Homelessness in NYC / Shelter Dynamics How Has Shelter Eligibility Changed?

Family Shelter Eligibility Rate Unchanged Number Applied Despite Years of Fluctuation Percent Eligible Percent Found Eligible Percent Number of Families Applied

Note: OTDA–New York State Office of Temporary and Disability Assistance

Source: New York City Department of Homeless Services, Local Law 37 Report, February 2012–April 2019

• Since the de Blasio Administration took • In the last year, even though the number office in 2014, the number of shelter of families applying continues to fluctuate, applicants has ranged from a high of 2,977 the percent of families deemed eligible has families in August 2018 to a low of 1,788 stayed relatively stagnant around 40%. families in February 2015. The percent of families that were deemed eligible ranged from a high of 61% in October 2014 to a low of 38% in July 2017.

7 Dynamics of Family Homelessness in NYC / Shelter Dynamics How Many Families in Shelter Have Experienced Homelessness Before?

More Families Entering Shelter for the First Time

New Families Repeat Families

Nov 2015: Number of new families surpasses number of repeat families in shelter

Note: Repeat families have previously been found eligible for family shelter at some point in the past.

Source: New York City Department of Homeless Services, unpublished data tabulated by the Institute for Children, Poverty, and Homelessness, FY 2015–FY 2016.

• Many families struggle with housing • After a long period where the majority of instability after leaving the shelter system shelter entrances were previously homeless and eventually must re-enter. In June 2016, families, the proportion of families returning almost half (46%) of families that were to shelter is now on the decline, with less entering shelter were “repeat” families, than half of all entrants since November meaning they had previously entered the 2015 being repeat families. Unfortunately, city shelter system. the decline in repeat families has been offset by an increase in the number of families entering shelter for the first time.

8 Dynamics of Family Homelessness in NYC / Shelter Dynamics Why Do Families Enter Shelter?

Domestic Violence Is the Most Common Reason Families Enter Shelter FY 2016 • Domestic violence was the most common reason families entered shelter, followed by eviction. Other 1,727 13% • Immediate return to shelter and overcrowding together represented one- Domestic third of all reasons for entering shelter. Violence Immediate 3,994 Immediate return means that a family was Return 30% previously in shelter and returned within 2,064 30 days because they could not sustain 16% permanent housing.

• “Other” reasons for entering shelter include Administration for Children’s Services Overcrowding (ACS)-related causes, discord, and unlivable 2,238 conditions. 17% Eviction 3,288 25% • This chart only shows the reason a family was determined eligible for shelter; it does not represent all families that applied or even all homeless families. Over half of all shelter applicants are denied and many are Source: New York City Department of Homeless Services, unpublished data tabulated by the Institute for Children, Poverty, and Homelessness, FY 2016. living in other temporary situations, such as doubled up with friends or family.

9 Dynamics of Family Homelessness in NYC / Shelter Dynamics Are All Family Shelters the Same? Net Increase in Shelter Capacity Due to Sharp Increase in Use of Hotels

Hotels Cluster Sites Tier II • During FY 2016, hotel 39% 8% 6% usage as type of shelter for 7,340 6,957 homeless families increased by almost 40%—the most of any shelter type. At the same time, homeless families in Tier II shelters increased by 6%, while families in cluster sites Number of Families decreased by 8%. 2,993 2,760 2,746 • By the end of FY 2016, the 1,981 number of families staying in hotels surpassed the number staying in cluster sites.

Source: New York City Department of Homeless Services, unpublished data tabulated by the Institute for Children, Poverty, and Homelessness, FY 2016.

What Are Different Family Shelter Types?

DHS utilizes two types of private hotel capacity to shelter homeless families. The first are hotels that have been converted into shelters offering private Hotels and rooms with kitchenettes. These facilities often operate without a City contract, Commercial Hotels* are poorly-maintained, and lack many of the services required by New York State Tier II regulations. The second are rooms rented in for-profit commercial hotels by non-profit operators under contract with the City.

Cluster Sites are shelter units in privately-owned residential buildings that house both rent-paying tenants as well as DHS clients. Cluster site apartments are both Cluster Sites the most poorly-maintained and are the least frequently-monitored of all three types of family shelters, in addition to offering the least adequate social services to families, most often with no on-site social services available.

Tier II shelters are certified by New York State and are typically the best maintained of all types of family shelters with the most on-site social services Tier II available to occupants. Tier II shelters are either run by nonprofit organizations in privately-owned buildings and operate under contracts with the City, or are directly-run by the City itself.

* Data received from DHS on shelter utilization does not distinguish between the two types of hotels noted in the “What Are Different Family Shelter Types?” definition box

10 Dynamics of Family Homelessness in NYC / Shelter Dynamics What Proportion of Families Are Placed in Each Shelter Type?

How Homeless Families Are Being Sheltered June 2016

• As of June 2016, most families (57%) are still placed in Tier II shelters. This proportion has risen by six percentage points since 2010.

• The growing reliance on hotels and recent Hotels 21.5% efforts to minimize the usage of cluster sites is a reversal from earlier this decade. Between 2010 and 2015, the percent of New York City’s homeless families placed in hotels Tier II was cut in half, from 32% to 16%. 57.1% Cluster Sites • As of September 2014, the City began 21.4% utilizing commercial hotel rooms to shelter homeless adults and families. Please see the previous page for an explanation of the different types of hotels used by the City. Hotel use data is presented herein is as provided by the DHS; it does not distinguish between the two types of hotels in use as Source: New York City Department of Homeless Services, unpublished data shelters. tabulated by the Institute for Children, Poverty, and Homelessness, FY 2016.

11 Dynamics of Family Homelessness in NYC / Shelter Dynamics Where Are Different Shelter Types? • The Concourse/Highbridge (B04) neighborhood of the Bronx had the highest The Distribution of Homeless Families and number of overall family shelter units, as well Shelters, by Community District as the highest number of cluster site units. May 2017 One in five of the city’s family cluster site units was located here. Where Are the Different Shelter Types? Where Are the Different Shelter Types? Distribution of Homeless Families and Shelters, by Community District PercentDistribution of Citywide of Homeless UnitsFamilies and Shelters, by Community District • Brownsville (K16) had the most Tier II units Percent of Citywide Units Percent of Citywide Units B08 B08 0.1%0.1%–1.2% – 1.2% Where Are the Different0.1% – 1.2% Shelter Types? of any Community District. Brownsville was 1.3%–2.7% B12 B12 Distribution1.3% of – Homeless2.7% 1.3% Families – 2.7% and Shelters, by Community District B07 B07 2.8%2.8%–4.4% – 4.4% 2.8% – 4.4% home to 641 Tier II units, or 10% of the city’s B11 B11 Percent of Citywide Units 4.5%4.5%–8.0% – 8.0% 4.5% – 8.0% B08 B05 B05 0.1% – 1.2% M12 M12 B06 B06 No Shelters SheltersNo Shelters total. The District with the highest number of B12 1.3% – 2.7% Major Parks/Airports ParksMajor and Parks/Airports Airports B04 B04B07 B03 B03 B09 2.8% – 4.4% B09 B10 B10 hotel shelter units was Jamaica/St. Albans B11 4.5% – 8.0%Number of Units M09 Number of Units M09 B02 B05 B02B01 8 – 203 M12 B01M10B06 No8 –Shelters 203 M10 (Q12), with 480 hotel units. Major Parks/Airports M11 204 – 566 B04 B03 Number204 – 566 of Units M11 B09 Q01 M07 Q01 B10 M07 Number of Units 567 – 1,018 M09 Q07 M08B02 Q07 567 – 1,018 M10 B01 8–2038 – 203 M08 • Midtown Manhattan (M05) had the most Q01 M04 204 – 566 M11 Q01 Q03 204–566 M04 M05 Q01 Q11 M07 Q03 Q11 shelter units of any Manhattan Community M05 M06 Q04 567–1,018567 – 1,018 Q07 M06M08M02 Q02 Q04 Q08 M03Q01 District in FY 2016. Midtown Manhattan M04M02 Q02 Q06 K01 Q03 Q11Q08 M05 M03 M01 Q05Q06 M06 K01 Q04 had 421 family shelter units in total. Staten M01 Q05 Q13 M02 Q02 K02 K04 Q09 M01 Q08 Q12 M03 K03 Q06 Q13 Island had a total of 46 family shelter units, K02 K01 K04 Q09 M01M01 K06 Q05 Q10 Q12 K03 K08 K16 K05 Q13 K06 K09 Q10 all of which were Tier II units located in St. K02 K08 K07 K04 Q09 Q12 M01 K16 K05 K03 K09 K17 K06K07 Q10 George (S01). K08 K12 K14 K17K16 K05 K10 K09 K07 K18 K12 K14 K11K17 K10 K18 • While the prevalence of cluster sites K12 K14 K15 K11 Q14 K10 K18 is declining, there are five community K13 K11 K15 Q14 K15 districts in the Bronx where they remain K13 Q14 Q14 S01 K13 the most common type of shelter. These S02 Q14 S01 Q14 neighborhoods are S01 Concourse/Highbridge S02 S03 Source: New York City Department of Homeless S02 Services, Shelter Repair Scorecard, May 2017. (B04), University Heights (B05), Bedford

S03 S03 Park (B07), Soundview (B09), and Pelham Parkway (B11).

12 Dynamics of Family Homelessness in NYC / Shelter Dynamics Ralph da Costa Nunez, PhD, President and CEO Aurora Zepeda, Chief Operating Officer

Policy Team: Andrea Pizano, Chief of Staff Chloe Stein, Principal Policy Analyst Kristen MacFarlane, Senior GIS Analyst Mukta Ramola, GIS Analyst

Katie Linek Puello, Content Manager Hellen Gaudence, Senior Graphic Designer Marcela Szwarc, Graphic Designer

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