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Housing for Youth Aging out of Foster Care

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Housing for Youth Aging out of Foster Care HOUSING FOR YOUTH AGING OUT OF FOSTER CARE U.S. Department of Housing and Urban Development HOUSING FOR YOUTH AGING OUT OF FOSTER CARE Prepared for U.S. Department of Housing and Urban Development, Office of Policy Development and Research Washington, D.C. Prepared by Robin Dion Amy Dworsky Jackie Kauff Rebecca Kleinman May 2014 i Housing for Youth Aging Out of Foster Care ACKNOWLEDGMENTS The authors gratefully acknowledge the valuable contributions others have made to this study. We particularly appreciate the excellent guidance of Anne Fletcher in the Office of Policy Development and Research at the U.S. Department of Housing and Urban Development (HUD). Others at HUD who contributed important insights include Brianna Benner, Caroline Crouse, Amaris Rodriguez, and Todd Shenk, and staff in the Office of Public and Indian Housing. We thank Catherine Heath and Laura Radel at the U.S. Department of Health and Human Services (HHS) for their support, information, and feedback, all of which were necessary for the successful completion of this report. The authors especially appreciate the input from staff at the local public housing agencies, public child welfare agencies, and community-based organizations who shared their experiences implementing the Family Unification Program (FUP) for youth. Their insights contributed to the understanding of how FUP can help youth during the transition to adulthood and of promising practices for serving youth through FUP. Many colleagues provided invaluable research assistance and advice. At Mathematica, Brandon Coffee-Borden and Miriam Rosenau, along with Keri-Nicole Dillman, formerly of Mathematica, provided assistance conducting the environmental scan for housing programs and conducting the literature review. Lisa Klein Vogel and Debra Wright led the survey development and administration, and Shilpa Khambhati prepared the survey data. Brandon Coffee-Borden, Miriam Rosenau, and Lisa Klein Vogel arranged and participated in site visits, along with the report authors. Matthew Stagner provided insightful reviews. Amanda Bernhardt carefully edited the report, and Donna Dorsey and Sharon Clark provided production support. Any errors that remain are solely those of the authors and not the responsibility of HUD or HHS. DISCLAIMER The contents of this report are the views of the contractor and do not necessarily reflect the views or policies of the U.S. Department of Housing and Urban Development or the U.S. government. ii Housing for Youth Aging Out of Foster Care FOREWORD Each year, approximately 25,000 youth exit the foster care system before being reunified with their family of origin, being adopted, or achieving another permanent living arrangement. These youth often have limited resources with which to secure safe and stable housing, which leaves them at heightened risk of experiencing homelessness. This report documents a series of research activities designed to address knowledge gaps related to the housing options available to youth who have aged out of foster care. The U.S. Department of Housing and Urban Development is committed to achieving the goal of ending homelessness for families, youth, and children by 2020, as established in Opening Doors: Federal Strategic Plan To Prevent and End Homelessness. While numerous studies seek to establish counts of the number of youth who have aged out of care and experienced homelessness, or to understand the relationship between child welfare involvement and youth homelessness, few studies have focused on the only known solution for homelessness—namely, housing. This report weaves together findings from the following three distinct research activities: 1. Highlights from the empirical evidence documenting the link between aging out of foster care and the experience of homelessness. 2. Findings about how communities can, and do, use the Family Unification Program to address the housing needs of youth aging out of foster care who do not have adequate housing. 3. Strategies for rigorously evaluating housing programs for youth aging out of foster care to better understand the effectiveness of various housing models. These findings document the current inadequacy of housing supports for youth aging out of foster care, which is compounded by a lack of evidence regarding what kinds of housing settings are most appropriate for this population. The report concludes on an optimistic note, however, by charting a course to enhance our understanding of the housing needs of youth who have aged out of foster care and to identify housing models that are most effective for preventing and ending homelessness among this population. Katherine M. O’Regan Assistant Secretary for Policy Development and Research iii Housing for Youth Aging Out of Foster Care CONTENTS EXECUTIVE SUMMARY ................................................................................................ viii Stable Housing Is Important Yet Elusive for Transitioning Foster Youth ................... ix Policies and Programs Offer Few Housing Opportunities for Youth .......................... ix FUP Has Promise for Supporting Youth but Is Not Widely Used for Them ............... xi Implications for Policy and Research ........................................................................ xii I. BACKGROUND AND INTRODUCTION ........................................................................ 1 Policy and Program Context ....................................................................................... 1 Study Objectives and Methodology ............................................................................ 3 II. HOUSING NEEDS OF YOUTH AGING OUT OF FOSTER CARE AND THE POLICIES AND PROGRAMS TO ADDRESS THEM ....................................................... 5 The Prevalence of Homelessness and Housing Instability Among Youth Aging Out of Care.................................................................................................................. 5 Barriers to Housing Among Youth Aging Out of Care ................................................. 6 Federal Policies and Funding Streams That Address Housing for Youth Aging Out of Foster Care ...................................................................................................... 8 State and Local Housing Programs for Youth Aging Out of Care ............................. 11 III. USING FUP TO ADDRESS YOUTHS’ NEEDS FOR SUPPORTIVE HOUSING: FINDINGS FROM SURVEYS AND SITE VISITS ........................................................... 16 Extent of Use of FUP for Youth ................................................................................. 17 Types of Housing Assistance Youth Receive Through FUP ..................................... 19 Types of Services Offered to Youth Through FUP ................................................... 21 Challenges in Administering FUP for Youth and Strategies To Address Them ........ 23 IV. IMPLICATIONS FOR POLICY AND RESEARCH .................................................... 27 Implications of the Findings on FUP ......................................................................... 27 Implications of the Broader Study of Housing Supports for Youth Aging Out of Care ...................................................................................................................... 27 Current Opportunities To Enhance Knowledge ........................................................ 28 V. CONCLUSION ........................................................................................................... 32 REFERENCES ............................................................................................................... 33 iv Housing for Youth Aging Out of Foster Care APPENDIX A STUDY METHODOLOGY ................................................................. A-1 Literature Review and Housing Program Inventory ................................................ A-2 Survey of FUP Providers ........................................................................................ A-3 Site Visits to FUP Communities .............................................................................. A-6 APPENDIX B KEY STUDIES OF HOMELESSNESS AND HOUSING INSTABILITY AMONG FORMER FOSTER YOUTH .................................................... B-1 APPENDIX C INVENTORY OF SELECTED HOUSING PROGRAMS FOR YOUTH AGING OUT OF FOSTER CARE ................................................................... C-1 APPENDIX D COMPENDIUM OF RESULTS FROM SURVEYS OF PHAs AND PCWAs ........................................................................................................... D-1 Use of FUP Vouchers for Youth .............................................................................. D-2 Program Partnerships ............................................................................................. D-6 Child Welfare Context ............................................................................................. D-9 FUP Entry ......................................................................................................... D-11 Housing Search and Lease-Up Process and Outcomes ...................................... D-14 Services Provided to Youth After They Lease Up ................................................. D-21 Exiting FUP and Transitional Assistance .............................................................. D-23 Housing Options Beyond FUP .............................................................................. D-26 Progress, Challenges, and
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