The 2008 Annual Homeless Assessment Report

The 2008 Annual Homeless

Assessment Report

July 2009 U.S. Department of Housing and Urban Development

Office of Community Planning and Development

FOREWORD I am pleased to submit the U.S. Department of Housing and Urban Development’s (HUD) 2008 Annual Homeless Assessment Report (AHAR) to Congress. This report is the fourth in a series of annual reports about homelessness in the United States. The report breaks new ground by being the first report to provide year-to-year trend information that explores changes in the patterns of homelessness over time. The 2008 AHAR focuses on two types of national estimates of homelessness. Point-in-time estimates provide the total number of sheltered and unsheltered homeless persons on a single-night in January. These estimates are based on local community counts of homeless persons, and the report compares point-in-time estimates for 2006 through 2008. The report also provides one-year estimates of the total sheltered population based on information from local Homeless Management Information Systems. The one-year estimates account for persons who used a homeless residential program at any time during a 12-month period. The report compares one-year estimates for 2007 and 2008. I am especially pleased with this year’s report because community participation in the AHAR has grown significantly and is expected to continue during the next few years. Between 2007 and 2008, the number of communities participating in the AHAR increased from 98 to 222, the largest one-year increase since HUD began collecting information for the AHAR. The report comes at a time of economic uncertainty and provides a few early indicators of how the economic downturn may be affecting the housing situation of low-income and vulnerable Americans. In these times, it is especially important to have comprehensive information about people who have become homeless. This latest report will be important in informing policy decisions and developing new strategies to prevent homelessness and assure decent affordable housing for our citizens. Shaun Donovan

Secretary

U.S. Department of Housing and Urban Development

ACKNOWLEDGEMENTS This 2008 Annual Homeless Assessment Report (AHAR) was developed by a team of researchers from Abt Associates Inc. and the University of Pennsylvania Center for Mental Health Services and Research. The team was led by Principal Investigators, Dr. Jill Khadduri (Abt) and Dr. Dennis Culhane (University of Pennsylvania). Dr. Alvaro Cortes (Abt) served as project director and was responsible for leading the data collection and analysis effort. Additional team members include: Tom Albanese, Larry Buron, Lauren Dunton, Nichole Fiore, Lindsay Fox, Tyronda Gibson, John Griffith, Mary Joel Holin, Emily Holt, Bulbul Kaul, Michelle Klausner, Joshua Leopold, Saty Patrabansh, Louise Rothschild, Kate Ryan, Brian Sokol, Brooke Spellman, K.P. Srinath, Matt White, and Jeff Smith (all from Abt Associates) and Stephen Poulin (University of Pennsylvania). The effort to develop an Annual Homeless Assessment Report began in 2002. Since then, the project has benefited greatly from the contributions of a number of HUD staff. Paul Dornan of the Office of Policy Development and Research, and Julie Hovden and Michael Roanhouse of the Office of Community Planning and Development have provided overall leadership and vision. The project has also benefited from the support of other HUD staff in the Office of Community Planning and Development, especially Mark Johnston and Ann Oliva. As a consultant to HUD, Dr. Martha Burt has provided thoughtful input on early drafts of the report. Finally, this project and this report could not have been possible without the participation of staff from Continuums of Care, local government agencies and nonprofit agencies responsible for HMIS implementation in communities across the country as well as HMIS software solution providers. Their continued commitment is greatly appreciated.

Table of Contents Executive Summary.............................................................................................................................i Point-in-Time Estimates of Homeless Persons in 2008..................................................................i One-Year Estimates of Sheltered Homeless Persons, October 2007-September 2008 ..............iii Sheltered Homeless People in 2008 ...............................................................................................iii Trends in Sheltered Homelessness, 2007-2008.............................................................................iv The Nationwide Capacity of Residential Programs for Homeless People ...................................v Looking Ahead ................................................................................................................................vi Chapter 1 Introduction......................................................................................................................1 1.1 History of the AHAR ..........................................................................................................1 1.2 AHAR Estimates for 2008..................................................................................................2 1.3 This Report...........................................................................................................................4 1.4 Trends in Homelessness and the Economic Crisis............................................................5 Chapter 2 National Estimates of All Homeless People, Sheltered and Unsheltered................7 2.1 PIT Counts of Homeless People.........................................................................................8 2.2 Trends in PIT Counts of Homeless People........................................................................9 2.3 PIT Counts of Homeless Subpopulations ........................................................................15 2.4 Estimates of Sheltered Homeless Individuals and Families During a One-Year Period.................................................................................................................................18 2.5 Summary of the National Estimates of All Homeless People........................................21 Chapter 3 Sheltered Homeless People in 2008.............................................................................23 3.1 Characteristics of People Using Homeless Shelters, 2008 .............................................23 3.2 Location of Homeless Service Use, 2008........................................................................33 3.3 Patterns of Homeless Service Use, 2008 .........................................................................36 3.4 Summary of All Sheltered Homeless People in 2008.....................................................39 Chapter 4 Trends in Sheltered Homelessness between 2007 and 2008....................................41 4.1 Changes in the Sheltered Homeless Population between 2007 and 2008 .....................42 4.2 Changing Patterns of Becoming Homeless, 2007-2008 .................................................47 4.3 Changing Use of the Residential System for Homeless People, 2007-2008.................50 4.4 Summary of Trends in Sheltered Homelessness between 2007 and 2008 ....................56 Chapter 5 The Nationwide Capacity of Residential Programs for Homeless People............59 5.1 Inventory of Residential Programs and Beds, 2008........................................................59 5.2 Geographic Location of Beds, 2008.................................................................................63 5.3 Bed Utilization and Turnover Rates, 2008 ......................................................................66 5.4 Changes in the National Inventory of Residential Programs and Beds, 2006-2008.....68 5.5 Summary of the Nationwide Capacity of Residential Programs for Homeless People.................................................................................................................................72 Chapter 6 Looking Ahead...............................................................................................................75 6.1 The 2009 AHAR................................................................................................................76 Appendix A: List of 2008 AHAR Sample Sites and Contributing Communities Appendix B: Data Collection and Analysis Methodology Appendix C: Continuum of Care Point-in-Time Counts of Homeless Persons Appendix D: Counts of Homeless Sheltered Persons Using HMIS Data

Executive Summary i Executive Summary The U.S. Department of Housing and Urban Development (HUD) is pleased to present the 2008 Annual Homeless Assessment Report (AHAR), the fourth in a series of reports on homelessness in the United States. The reports respond to a series of Congressional directives calling for the collection and analysis of data on homelessness. The 2008 AHAR breaks new ground by being the first report to provide year-to-year trend information on homelessness in the United States. The report provides the latest counts of homelessness nationwide—including counts of individuals, persons in families, and special population groups such as veterans and chronically homeless people. The report also covers the types of locations where people use emergency shelter and transitional housing; where people were just before they entered a residential program; how much time they spend in shelters over the course of a year; and the size and use of the U.S inventory of residential programs for homeless people. This AHAR also is the first to compare Point-in-Time estimates reported by Continuums of Care across several years. Point-in-Time Estimates of Homeless Persons in 2008 On a single night in January 2008, there were 664,414 sheltered and unsheltered homeless persons nationwide. Nearly 6 in 10 people who were homeless at a single point-in-time were in emergency shelters or transitional housing programs, while 42 percent were unsheltered on the “street” or in other places not meant for human habitation. Data Sources Used in the AHAR The AHAR is based on two data sources: 1. Continuum of Care applications are submitted to HUD annually as part of the competitive funding process and provide one-night, Point-in-Time (PIT) counts of both sheltered and unsheltered homeless populations. The PIT counts are based on the number of homeless persons on a single night during the last week in January, and the most recent PIT counts for which data are available nationally were conducted in January 2008. 2. Homeless Management Information System (HMIS) are electronic administrative databases that are designed to record and store client-level information on the characteristics and service needs of homeless persons. HMIS data is used to produce counts of the sheltered homeless population over a full year—that is, people who used emergency shelter or transitional housing programs at some time during the course of a year. The 2008 AHAR uses HMIS data for the most recent, one-year reporting period and compares these data to previous HMIS-based findings.

Executive Summary ii About three-fifths of the people homeless on a single night were homeless as individuals (62 percent), while two-fifths (38 percent) were homeless as part of a family. Family members were much less likely than individuals to be unsheltered. About 27 percent of all homeless family members were unsheltered on the night of the point-in-time count, while almost half of homeless individuals were unsheltered. One-day PIT counts of homelessness changed little between 2007 and 2008: the total number of homeless persons decreased by about 1 percent or 7,500 people. Information from CoC applications includes counts of particular homeless subpopulations, including people whose homelessness is chronic—that is, individuals with disabilities and long or frequent patterns of homelessness. National policy has focused on ending chronic homelessness through funding incentives to develop permanent supportive housing and through the dissemination of best practice strategies for reducing chronic homelessness. Measuring the scope of chronic homelessness remains challenging, however, and thus the PIT estimates of persons experiencing chronic homelessness that are reported in CoC applications should be interpreted as approximations. The January 2008 PIT estimate of chronic homelessness is 124,135 persons, or 30 percent of all homeless individuals. The PIT count of chronically homeless persons in 2008 is nearly identical to the count in 2007. The concentration of homeless persons in a state—or the estimated number of homeless persons as a percent of the state’s total population—varies considerably across the United States. On a single night in January 2008, the states with the highest concentrations of homeless people were Oregon (0.54 percent of the state’s population), Nevada (0.48 percent), Hawaii (0.47 percent), and California (0.43 percent). More than half of all homeless people on a single night in January 2008 were found in just five states: California (157,277), New York (61,125), Florida (50,158), Texas (40,190) and Michigan (28,248). Their share is disproportionate, as these states constitute only 36 percent of the total U.S. population. Mississippi, South Dakota, and Kansas had the nation’s lowest concentration of homeless persons. Homelessness is heavily concentrated in urban areas. For example, 91 percent of Nevada’s homeless population was located in the Las Vegas CoC and almost 67 percent of Michigan’s homeless population was in the Detroit CoC. Other states with high concentrations of homeless persons in urban areas included: Arizona (60 percent were located in the Phoenix Continuum of Care), Pennsylvania (nearly 50 percent were located in Philadelphia CoC), and California (40 percent were located in the Los Angeles CoC). In both 2007 and 2008, one in five people homeless on a single night in January were in Los Angeles, New York, or Detroit.

Executive Summary iii One-Year Estimates of Sheltered Homeless Persons, October 2007- September 2008 About 1.6 million persons used an emergency shelter or a transitional housing program during the 12-month period (October 1, 2007 through September 30, 2008), suggesting that 1 in every 190 persons in the United States used the shelter system. The nation’s sheltered homeless population over a year’s time included approximately 1,092,600 individuals (68 percent) and 516,700 persons in families (32 percent). A family is a household that includes an adult 18 years of age or older and at least one child. All other sheltered homeless people are considered individuals. Considered as households rather than separate people, there were 159,142 sheltered families, about 14 percent of all sheltered homeless households. The total number of sheltered homeless persons remained essentially unchanged between 2007 and 2008, increasing by only 5,200 people. However, the household composition of the sheltered homeless population shifted somewhat between 2007 and 2008. The number of homeless individuals was fairly stable, while homelessness among persons in families increased by about 43,000 or 9 percent. Accordingly, the share of family households among all sheltered households also increased, by nearly 3 percentage points. Sheltered Homeless People in 2008 The one-year estimates based on HMIS data include detail on the demographic characteristics of the 1.6 million people who were homeless in a shelter some time over the course of a year, where they were before they entered the residential program, and for how much of the year they stayed in the shelter. The most common demographic features of all sheltered homeless people are: male, members of minority groups, older than age 31, and alone. More than two-fifths of sheltered homeless people have a disability. At the same time, sizable segments of the sheltered homeless population are white, non-Hispanic (38 percent), children (20 percent), or part of multi-person households1 (33 percent). Approximately 68 percent of the 1.6 million sheltered homeless people were homeless as individuals and 32 percent were persons in families. When compared to family members, people who use the homeless residential system as individuals are particularly likely to be men, middle aged (between the ages of 31 and 50), and to have a disability. About 13 percent of sheltered homeless individuals are veterans. By contrast, sheltered homeless families are very likely to be headed by a woman under age 30 without a male partner. A 1 This includes multi-adult and multi-child households that are counted in the AHAR as separate individuals, as well as family households composed of at least one adult and one child.

Executive Summary iv majority of homeless families have 2 or 3 members. Half of all children in families are 5 years old or younger. In 2008 more than two-thirds of all sheltered homeless people were located in principal cities, with 32 percent located in suburban or rural jurisdictions. Nearly 1 in every 66 persons living in principal cities in the United States accessed a homeless shelter, compared to about 1 in every 450 persons living in suburban or rural areas. Individual sheltered homeless people are more heavily concentrated in urban areas than sheltered homeless families. Seventy-one percent of individuals access residential services for homeless people in principal cities of metropolitan areas (formerly called central cities), compared to 62 percent of persons in families. About two-fifths of people entering an emergency shelter or transitional housing program during 2008 came from another homeless situation (sheltered or unsheltered), two-fifths came from a housed situation (in their own or someone else’s home), and the remaining one- fifth were split between institutional settings or other situations such as hotels or motels. Families were particularly likely to be housed the night before becoming homeless: more than 6 in 10 were either in their own housing unit (19 percent), staying with family (28 percent), or staying with friends (15 percent). Most people had relatively short lengths of stay in emergency shelters: three-fifths stayed less than a month, and a third stayed a week or less. Stays in transitional housing were longer: about 40 percent stayed 6 months or more in 2008. Nearly 1 in 5 people in transitional housing was there for the entire year. Trends in Sheltered Homelessness, 2007-2008 The 2008 AHAR is the first to report year-to-year trend information about homelessness in the United States. These estimates compare the HMIS-based data for October 2007 through September 2008 with the data for October 2006 through September 2007. Overall, the total number of sheltered homeless persons was about the same in both 2007 and 2008, about 1.6 million people. Homelessness among individuals remained relatively unchanged, but the rise in family homelessness was considerable, with an increase of 43,000 persons in families, or 9 percent, from 2007. The share of people in families who are sheltered increased from 29 percent to 32 percent. Sheltered homelessness among individuals may be characterized increasingly by people with relatively high needs. Between 2007 and 2008, the share of sheltered homeless individuals who were in institutional settings (e.g., prisons, jails, or inpatient facilities) the night before they became homeless increased. Also, among persons who provided information, the share of sheltered homeless adults who report a disability increased, and the percentage of individual homeless people with very short stays in emergency shelter declined. These shifts

Executive Summary v may suggest that communities have achieved some success in preventing homelessness among individuals with less severe needs, thereby resulting in a sheltered homeless population with greater needs. The numbers of both sheltered homeless individuals and sheltered homeless family members dropped somewhat in principal cities. The numbers of both populations increased substantially in suburban and rural areas. The share of the sheltered homeless population in suburban and rural areas grew from 23 percent in 2007 to 32 percent in 2008. The increase does not reflect increased capacity of residential programs in suburban and rural areas, but instead more intensive use of that capacity. The 2008 reporting period ended just as the economic recession was accelerating, thus it may be premature to expect impacts on sheltered homelessness. Nonetheless, there are some possible early indications of how sheltered homelessness may be changing during the economic downturn. The first indication is the rise in family homelessness, which is considered to be more sensitive to economic conditions than homelessness among individuals. Second, between 2007 and 2008 there was a decrease in the share of people who reported they were already homeless prior to entering a homeless residential program and an increase in those who reported that they were living with family or friends the night before entering the homeless residential facility. This could reflect the economic downturn, because people tend to use all alternative housing options before resorting to the shelter system. Finally, a larger percentage of sheltered homeless persons came from stable accommodations prior to entering a facility—that is, they were in the place they spent the night before becoming homeless for a year or more. The Nationwide Capacity of Residential Programs for Homeless People In their annual applications to HUD, CoCs submit information on their inventories of residential beds for homeless people. In 2008, CoCs reported a total of 614,042 year-round beds nationwide, almost evenly divided among emergency shelters, transitional housing, and permanent supportive housing. For several years, one of HUD’s policy priorities has been the development of permanent supportive housing programs that provide a combination of housing and supportive services to formerly homeless people with disabilities. The number of permanent supportive housing beds in 2008 was 195,724, a 22 percent increase since 2006. Between 2007 and 2008, the rate at which beds in residential programs were used on an average day increased to 91 percent for emergency shelter and 83 percent for transitional housing. The increase was greatest for transitional housing programs in suburban and rural areas, which experienced a 10 percentage point increase, from 74 to 84 percent.

Executive Summary vi Looking Ahead The 2009 AHAR will continue to provide Congress and the nation with updated counts of homelessness nationwide, including counts of individuals, persons in families, and special population groups such as chronically homeless people and persons with disabilities. The next report will also use HMIS-based trend data for three years, 2007-2009. The 2009 AHAR will also feature two important additions: a special chapter on homeless veterans and data on HUD’s efforts to prevent homelessness and re-house homeless people through the Homelessness Prevention and Rapid Re-Housing Program (HPRP). The chapter on homeless veterans comes at a time when many service men and women are returning from active duty in Iraq and being deployed to Afghanistan. Thus, the chapter will provide an important baseline understanding of homelessness among veterans that, in turn, can be used to assess how homelessness among veterans may change over time. Finally, as part of the American Recovery and Reinvestment Act of 2009, Congress allocated $1.5 billion for a Homelessness Prevention Fund, which supports HPRP. The purpose of HPRP is to provide homelessness prevention assistance to households who would otherwise become homeless—many due to the economic crisis—and to provide assistance to rapidly re- house persons who are homeless. HUD will begin collecting data from HPRP programs nationwide and report this information in the 2009 AHAR.

Introduction 1 Chapter 1 Introduction This report is the fourth Annual Homeless Assessment Report (AHAR) and the first to provide year-to-year trend information on the prevalence of homelessness nationwide, the demographic characteristics of homeless people, and the way homeless people use the residential services system. The report provides the latest counts of homelessness nationwide—including counts of individuals, persons in families, and special population groups such as veterans and persons experiencing chronic homelessness. The report also covers the types of locations where people use emergency shelter and transitional housing; where people were just before they entered a residential program; how much time they spent in shelters over the course of a year; and the size and use of the U.S inventory of residential programs for homeless people. This report breaks new ground by being the first AHAR to compare annual sheltered counts from year to year. It is also the first report to compare Point-in-Time (PIT) counts across multiple years. These comparisons are useful for several reasons. First, the comparisons suggest whether homelessness is increasing or decreasing nationwide and thus help to gauge whether the nation’s policy responses are making progress toward preventing and ending homelessness. They also suggest how the portrait of homelessness—or the demographic composition of the homeless population—may be changing over time. This understanding helps both policymakers and practitioners to target particular homeless subpopulations that need additional assistance. Finally, annual comparisons reveal how shelter use patterns may be fluctuating, which, in turn, may prompt funding reallocations to support programs that are in high demand. 1.1 History of the AHAR At the direction of Congress, the U.S. Department of Housing and Urban Development (HUD) created uniform national data definitions for local Homeless Management Information Systems (HMIS), instructed programs receiving HUD McKinney-Vento funding to report to those systems, and encouraged all programs for homeless people—regardless of their funding source—to report data to the HMIS. HMIS implementations have grown stronger over the past several years and, recognizing their usefulness for local planning and policy-making, an increasing number of emergency shelters and transitional housing programs participate in an HMIS. Emergency shelters and transitional housing programs are the primary providers of residential services to homeless persons. Six years ago, HUD established a nationally representative sample of communities and began working with those and other communities willing to provide their HMIS data to produce unduplicated estimates of users of emergency shelter and transitional housing. An

Introduction 2 unduplicated estimate means that each person is counted once during a given time period, even if the person is served multiple times during that period. Since 2005, communities have been submitting unduplicated counts of shelter users as well as other information about their demographic characteristics and patterns of service use for analysis and reporting in the AHAR. HUD has supported local efforts to submit data to the AHAR by providing technical assistance on how to increase participation in HMIS among homeless service providers and on improving the accuracy and reliability of the data. Four reports have been submitted to Congress since HUD launched this effort:  The first report (2005 AHAR) covered a three-month period in 2005 and was based on HMIS data reported by 63 communities.  The second AHAR (2006 AHAR) covered six months, January through June 2006, and included information from 74 communities.  The third AHAR (2007 AHAR) was the first report to cover an entire year, October 2006-September 2007, and serves as the baseline for analyzing trends over time. For this report, the number of communities providing useable data had increased to 98.  This 2008 AHAR uses HMIS data provided by 222 communities nationwide, covering about 40 percent of the total U.S. population, to produce nationwide estimates of sheltered homelessness. The report covers the period from October 2007 through September 2008. In addition to supporting data collection through HMIS, HUD has required CoCs to report PIT data collected for a single night in January as part of communities’ applications for McKinney-Vento funding. PIT data provide a one-night “snapshot” of homelessness within each CoC. HUD provides technical assistance to communities on how to conduct these PIT counts, focusing on improving the accuracy of the counts by helping communities develop sound enumeration strategies. As a result, the reliability of PIT data has improved greatly over time. The CoC applications also provide information on the inventory of residential programs, beds, and units for homeless people. 1.2 AHAR Estimates for 2008 The AHAR provides two types of estimates. The CoC PIT data provide estimates of all people who are homeless either in shelters or in places not meant for human habitation (colloquially, “the street”). The HMIS data collected for the AHAR make it possible to present one-year estimates of all people who are sheltered homeless at some time during a year. Both types of estimates are important:  The PIT data provide a total count of all homeless people on a single night in January and describe the share of people who are sheltered (i.e., in emergency shelter or

Introduction 3 Definitions of Key Terms 1. Individuals: The HMIS-based estimates of sheltered homeless individuals include single adults, unaccompanied youth, persons in multi-adult households, and persons in multi-child households. A multi-adult household is a household composed of adults only—no children are present. A multi-child household is composed of children only (e.g., parenting youth)— no adults are present. 2. One-Year Sheltered Counts: 12-month counts of homeless persons who use an emergency shelter or transitional housing program at any time from October though September of the following year. The one-year counts are derived from communities’ administrative databases, or Homeless Management Information Systems (HMIS). 3. Persons in Families: The HMIS-based estimates of homeless persons in families include persons in households with at least one adult and one child. 4. Point-in-Time (PIT) Counts: One-night counts of both sheltered and unsheltered homeless populations. The one-night counts are reported on CoC applications and reflect a single-night during the last week in January. 5. Principal City: Following guidance from the U.S. Office of Management and Budget, the AHAR replaces the term “central city” with “principal city.” The largest city in each metropolitan or micropolitan statistical area is designated a principal city, and other cities may qualify if specified requirements (population size and employment) are met. 6. Sheltered: A homeless person who is in an emergency shelter or transitional housing program for homeless persons. 7. Unsheltered: A homeless person who is living in a place not meant for human habitation, such as the streets, abandoned buildings, vehicles, parks, and train stations. transitional housing) or unsheltered (i.e., in a place not meant for human habitation) on that night.  The HMIS data provide a more detailed demographic profile of sheltered homeless people and their use of the residential services system during a one-year period. The estimated totals for 2008 are that:  About 664,000 people were homeless—sheltered and unsheltered—on a single night in January 2008.  About 1.6 million people were homeless in emergency shelters or transitional housing at some point during the year between October 1, 2007 and September 30, 2008.

Introduction 4 Data do not exist to support an unduplicated estimate of the total number of people who are sheltered and unsheltered homeless over the course of a year.2 However, given the information provided in this report, it is roughly estimated that 2 million people were homeless—sheltered and unsheltered—at some time during 2008. 1.3 This Report Chapter 2 provides more detail on the “counts” of homeless persons. The counts are based on the PIT estimates for individuals and members of families who are in shelters and on the streets, as well as the HMIS-based estimates of individuals and families who access a shelter at some time during 2008. The chapter describes trends in the PIT estimates over a three- year period, 2006-2008, and also provides detail on how homelessness varies from state to state and for particular cities. Chapter 3 describes the sheltered homeless population in 2008. The chapter focuses on the demographic characteristics of sheltered homeless people and how they differ from the characteristics of people living in poverty. It also discusses the types of locations where people use emergency shelters and transitional housing programs and how people use residential programs (e.g., which programs they use and how long they stay). Chapter 4 focuses on trends in sheltered homelessness between 2007 and 2008. The chapter describes shifts in the homeless population between individuals and families, the changing geography of homelessness, and changes in the use of the residential system for homeless people. The chapter also reports changes in the patterns of becoming homeless— that is, where people said they were the night before entering an emergency shelter or a transitional housing program and how long they had been there. Chapter 5 documents the numbers and locations of residential programs for homeless people, including emergency shelters, transitional housing programs as well as permanent supportive housing. The chapter also reports how intensively emergency shelters and transitional housing programs are used and how that has changed over time. Appendix A provides a list of the communities providing useable data to this 2008 AHAR. Appendix B describes the methodology for selecting the nationally representative sample of communities, collecting and cleaning the data, and for weighting and adjusting the data to create the national estimates. Appendix C presents the PIT estimates for each state and CoC. Appendix D consists of detailed tables based on the HMIS data. The tables provide counts of 2 Adding the unsheltered count from the Point-in-Time estimate to the HMIS-based one-year count would miss people who were unsheltered on some other night during the year but not when the “street count” was conducted. On the other hand, adding the unsheltered count also would double-count the large fraction of the people who are unsheltered homeless on a particular night but who go to emergency shelters at some time during a year and are already counted in the HMIS data.

Introduction 5 sheltered homeless people in numerous categories for 2007 and 2008 and are intended to supplement the information provided in the body of the report. 1.4 Trends in Homelessness and the Economic Crisis This first year-to-year comparison of HMIS data on sheltered homelessness is of particular interest because of the economic and foreclosure crisis that began in December 2007. Changes across the two years provide an early glimpse at the effect of the recession on homelessness, but the full effect of the economic and foreclosure crisis has yet to be observed in the AHAR. The data collection period for the 2008 AHAR ended on September 30, 2008, just as the crisis was accelerating, yet the impact of the crisis continues to unfold throughout the United States. Also, as suggested in this report as well as in other studies, people who are in jeopardy of losing their homes due to unemployment or foreclosure typically rely on other housing options before resorting to the shelter system. For example, people often stay with family and friends until they either regain their financial footing, move to another location, or become homeless. Both PIT and HMIS data show that, while homelessness remains predominately an urban phenomenon and most people are homeless as individuals rather than as members of families, homelessness became more common among families between 2007 and 2008. This shift is probably related to the economic crisis, although it is unknown if it will persist. The data also show that, in spite of the economic crisis, there was a decline in homelessness in urban areas (defined as principal cities of metropolitan areas). This drop may reflect progress communities were making in ending chronic homelessness before the economic downturn. Chronic homelessness refers to individuals who have experienced repeated episodes of homelessness or have been homeless for several years. Ending chronic homelessness has been a national policy objective that has been supported by significant investments in developing permanent supportive housing. For several years communities have reported declines in the number of persons experiencing chronic homelessness.

Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 7 Chapter 2 National Estimates of All Homeless People, Sheltered and Unsheltered This chapter presents the most recent national estimates of all homeless people in the United States, both those who are in emergency shelters and transitional housing programs and those who are found in the annual “street count” to be in places not meant for human habitation. The chapter presents two types of estimates: 1. One-night, Point-in-Time (PIT) counts of both sheltered and unsheltered homeless populations are based on data from the CoC applications, which are submitted to HUD annually and indicate the number of homeless persons during the last week in January. The most recent PIT counts for which data are available nationally were conducted in January 2008.3 PIT counts include the “street counts” that, through a variety of methods, estimate the number of unsheltered homeless people in each community, as well as estimates of sheltered homeless people based on a census of shelter and transitional housing occupants on a particular night. 2. Counts of the sheltered homeless population over a full year—that is, people who used emergency shelter or transitional housing programs at some time during the course of the year—are based on the longitudinal HMIS data collected by HUD from a nationally representative sample of communities. These one-year counts of sheltered homeless people account for people who used a residential program for homeless people at any time from October 1, 2007 through September 30, 2008. Using both types of estimates, the chapter:  Presents the PIT counts of all sheltered and unsheltered homeless people, distinguishing between sheltered and unsheltered homeless people and between people who are homeless as individuals and as members of families. The chapter also describes how these estimates changed between 2006 and 2008 and provides detailed estimates for each state.  Presents the PIT counts of homeless “subpopulations.” Subpopulations include people who are chronically homeless; people with severe mental illness and/or 3 A communitywide PIT count demands considerable local resources and planning. Therefore, HUD requires communities to conduct PIT counts biennially. In the past, some communities chose to conduct their counts in even-numbered years while others chose odd-numbered years. To synchronize the timing of communities’ PIT counts, HUD required all communities to conduct a count in 2007 and thereafter will require communities to conduct a count in alternating years. Nonetheless, about 67 percent of CoC chose to conduct a PIT count in 2008, which may not be representative of all communities nationwide.

8 Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered substance abuse issues; veterans; unaccompanied youth; and people living with HIV/AIDS.  Presents the one-year estimates of sheltered homeless people based on HMIS data, which are provided separately for individuals and persons in families. The chapter also describes how those estimates changed between 2007 and 2008. This summary of the one-year estimates is expanded in chapter 3, which discusses demographic characteristics and patterns of sheltered homelessness in 2008, and in chapter 4, which elaborates on trends in sheltered homelessness between 2007 and 2008. 2.1 PIT Counts of Homeless People On a single night in January 2008, there were 664,414 sheltered and unsheltered homeless persons nationwide (see Exhibit 2-1). About 58 percent (386,361) were in emergency shelters or transitional housing programs, while 42 percent (278,053) were unsheltered. Exhibit 2-1: Homeless Individuals and Persons in Families by Sheltered Status, 2008 Household Type Number Percentage Total Sheltered 386,361 58.2% Unsheltered 278,053 41.8% Total 664,414 100.0% Individuals Sheltered 204,855 49.3% Unsheltered 210,347 50.7% Total 415,202 100.0% Persons in Families Sheltered 181,506 72.8% Unsheltered 67,706 27.2% Total 249,212 100.0% Source: 2008 Continuum of Care Applications: Exhibit 1, CoC Point-in-Time Homeless Population and Subpopulations Charts Approximately three-fifths of those homeless on a single night in January 2008 were individuals, and about two-fifths were homeless as members of families. People who become homeless as individuals have different needs and experiences from parents who become homeless together with their children, and communities often have different approaches and discrete programs designed to serve these two population groups. As shown on Exhibit 2-1, family members were much less likely than individuals to be unsheltered (i.e., in a place not meant for human habitation): 27 percent of homeless family members were unsheltered in January 2008, compared to 51 percent of homeless individuals.

Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 9 664,414 people were homeless on a single night in January 2008. The higher sheltered rates among persons in families are expected because unsheltered situations can be particularly unsafe for children, and thus families tend to use all available options to avoid unsheltered homelessness. In addition, many communities have explicit policies to reduce the number of children on the streets by using hotel or motel vouchers, churches, and other mechanisms to shelter homeless children. It is also possible that families who are on the verge of becoming literally homeless have more alternative housing options than homeless individuals because family and friends are less willing to let them go to a place not meant for human habitation. Finally, it is possible that in some communities, families have more access to shelter than individuals because the amount of shelter capacity for homeless families exceeds the need. (See chapter 5 for information on the inventory of residential programs for homeless people.) 2.2 Trends in PIT Counts of Homeless People One-day counts of homelessness changed little between 2007 and 2008: the total number of homeless persons decreased by about 1 percent or 7,500 people (see Exhibit 2-2). However, changes are more pronounced when considering homeless individuals and persons in families separately. The number of homeless individuals on a single night in January dropped by 2 percent (about 8,200 people), while the number of homeless families increased very slightly (700 people in families). Accordingly, persons in families constitute a slightly larger share of the total homeless population (38 percent) in 2008 when compared to the estimates for 2007 (37 percent).4 As discussed later in this chapter and in chapter 4, the shift toward families between 2007 and 2008 was more pronounced on the one-year count of sheltered homeless people—that is, among people who were in emergency shelters or transitional housing programs at some time during the course of a year. The number of sheltered and unsheltered homeless persons on a single night in January declined much more over the two-year period, 2006 to 2008 (see Exhibit 2-3). From 2006 to 2008, the total number of homeless persons dropped 13 percent (from 763,000 to 664,400), the number of homeless individuals declined 8 percent (or about -37,000 people), and the number of persons in families declined 19 percent (or -57,000 people). However, the declines leveled in 2008. 4 The decrease in homelessness among individuals and the increase among persons in families are also observed if the comparison of PIT data is limited to CoCs that conducted new counts in both 2007 and 2008. About 67 percent of CoCs conducted counts in both years. Among these CoCs, the total number of homeless persons decreased by less than one percent (or -2,000 people), including a 2 percent decrease among homeless individuals (-3,330 people) and a 1 percent increase among homeless persons in families (1,300 people). A communitywide PIT count demands considerable local resources and planning. Therefore, HUD requires communities to conduct PIT counts biennially—beginning in 2007 and every other year thereafter.

10 Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered Source: 2006 through 2008 Continuum of Care Application: Exhibit 1, CoC Point-in-Time Homeless Population and Subpopulations Charts Exhibit 2-3: Trends in Point-in-Time Count of Homeless Individuals and Persons in Families, 2006 –2008 671,888 452,580 423,377 415,202 306,521 248,511 249,212 759,101 664,414 0 100,000 200,000 300,000 400,000 500,000 600,000 700,000 800,000 2006 2007 2008 All Homeless Persons Homeless Individuals Homeless Persons in Families Source: 2007 and 2008 Continuum of Care Application: Exhibit 1, CoC Point-in-Time Homeless Population and Subpopulations Charts 423,377 415,202 248,511 249,212 0 100,000 200,000 300,000 400,000 500,000 2007 (N=671,888) 2008 (N=664,414) Nu m be ro fH om ele ss Pe rs on s Individuals Persons in Families Exhibit 2-2: Point-in-Time Counts of Homeless Individuals and Persons in Families, 2007 and 2008

Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 11 Most of the decline took place between 2006 and 2007, rather than between 2007 and 2008. As noted in the 2007 AHAR, some of the decline between 2006 and 2007 may have been associated with improved methods for counting people, especially unsheltered persons who may be scattered throughout a community and hidden from enumerators who conduct the “street count.” For example, anecdotal evidence suggests that communities have improved their ability to identify and canvass areas with known homeless populations and develop appropriate statistical techniques to account for people who may have been missed through direct observation. By 2008, many communities had well-developed PIT count methods, and the estimates derived from these methods are reasonably reliable. According to the PIT data, the percentages of homeless people who were sheltered or unsheltered did not change for individuals between 2007 and 2008 or over the two-year period, as shown in Exhibit 2-4. However, sheltered rates among homeless persons in families increased from 66 percent in 2006 to nearly 73 percent in 2008. This finding may reflect improved standardization in the methods for counting the unsheltered homeless population. State PIT Counts of Homeless Persons Exhibit 2-5 presents the percentage of each state’s population represented by homeless persons on a single night in January 2008. The percentages are ranked from highest to lowest. (Appendix C provides the detailed PIT count information by state and Continuum of Source: 2006 through 2008 Continuum of Care Application: Exhibit 1, CoC Point-in-Time Homeless Population and Subpopulations Charts 71.8% 72.8% 66.4% 56.4% 58.3% 58.2% 49.3%50.3%49.6% 0% 10% 20% 30% 40% 50% 60% 70% 80% 2006 2007 2008 Sheltered Persons in Families All Sheltered Homeless Persons Sheltered Individuals Exhibit 2-4: Percentage of Homeless Individuals and Persons in Families in Shelter, 2006 –2008

12 Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered Care). On a single night in January 2008, the states with the highest concentrations of homeless people were Oregon (0.54 percent or 20,653 people), Nevada (0.48 percent or 12,610 people), Hawaii (0.47 percent or 6,061 people), and California (0.43 percent or 157,277 people). These states also had high concentrations of homeless people in 2006 and 2007. Mississippi, South Dakota, and Kansas had the nation’s lowest concentration of homeless persons. Exhibit 2-5: Estimates of Homeless Persons as a Percent of State’s Total Population, 20081 Rank2 State % # Rank2 State % # 1 Oregon 0.54% 20,653 26 Wyoming 0.14% 751 2 Nevada 0.48% 12,610 27 Connecticut 0.13% 4,627 3 Hawaii 0.47% 6,061 Missouri 0.13% 7,687 4 California 0.43% 157,277 North Carolina 0.13% 12,411 5 Washington 0.34% 21,954 South Carolina 0.13% 5,660 6 New York 0.31% 61,125 Utah 0.13% 3,434 7 Colorado 0.30% 14,747 32 Alabama 0.12% 5,387 8 Michigan 0.28% 28,248 Indiana 0.12% 7,395 9 Florida 0.27% 50,158 Louisiana 0.12% 5,481 10 Alaska 0.24% 1,646 Pennsylvania 0.12% 15,378 11 Massachusetts 0.22% 14,506 36 Arkansas 0.11% 3,255 12 Nebraska 0.22% 3,985 Delaware 0.11% 933 13 Georgia 0.20% 19,095 Illinois 0.11% 14,724 Maine 0.20% 2,632 Iowa 0.11% 3,346 15 Arizona 0.19% 12,488 Ohio 0.11% 12,912 Kentucky 0.19% 8,137 Oklahoma 0.11% 3,846 17 Texas 0.17% 40,190 Rhode Island 0.11% 1,196 18 Maryland 0.16% 9,219 Virginia 0.11% 8,469 New Jersey 0.16% 13,832 West Virginia 0.11% 2,016 Tennessee 0.16% 9,705 45 Idaho 0.10% 1,464 21 Minnesota 0.15% 7,644 North Dakota 0.10% 615 Montana 0.15% 1,417 Wisconsin 0.10% 5,449 New Hampshire 0.15% 2,019 48 Mississippi 0.07% 1,961 New Mexico 0.15% 3,015 South Dakota 0.07% 579 Vermont 0.15% 954 50 Kansas 0.06% 1,738 1 District of Columbia, Puerto Rico, and U.S. Territories are not included: District of Columbia (1.02% or 6,044 people), Puerto Rico (0.08% or 3,012 people), Virgin Islands (0.55% or 602 people), and Guam (0.47% or 725 people). 2 Rank is based on the number of homeless persons as a percent of the state’s total population. Sources: 2008 Continuum of Care Applications: Exhibit 1, CoC Point-in-Time Homeless Population and Subpopulations Chart; 2007 American Community Survey

The 2008 Annual Homeless Assessment Report

Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 13 More than half of all homeless people were found in just five states on a single night in January 2008: California (157,277), New York (61,125), Florida (50,158), Texas (40,190), and Michigan (28,248). Their share is disproportionate, as these states constitute only 36 percent of the total U.S. population. Also, several western states had high concentrations of homeless persons, including Oregon, Nevada, California, and Washington. In 2008, only eight states had higher shares of their homeless population in unsheltered locations than in shelters: California (70 percent unsheltered), Colorado (53 percent), Florida (59 percent), Georgia (54 percent), Hawaii (55 percent), Michigan (58 percent), Nevada (61 percent), and Oregon (52 percent). With the exception of Colorado and Michigan, all of these states are located in the South and Southwest where the warmer weather may make living in unsheltered locations more tenable. Exhibit 2-6 displays the percentage change in the size of the homeless population by state from 2007 to 2008. During this period, just over half (28 out of 50) of the states experienced a decline in their total PIT homeless population, resulting in nearly 20,000 fewer homeless persons in these jurisdictions on the night of the January PIT count. The states that experienced the largest reductions in their homeless populations between 2007 and 2008 were West Virginia and Idaho (-16 percent), Arkansas and Arizona (-15 percent), and Tennessee and Virginia (-13 percent). Conversely, several states—especially states that are predominantly rural—witnessed large increases in their homeless populations, such as Mississippi (42 percent), Wyoming (40 percent), Montana and Missouri (23 percent), and Iowa (22 percent). Some of these states had relatively small numbers of homeless persons and thus slight changes in these numbers could result in large percentage changes. (The appendices in the report provide further details by state.) Nonetheless, an increase in homelessness among rural communities is also evident in the HMIS-based estimates, as discussed in chapter 4.  1 of every 200 people in Oregon, Nevada and Hawaii is homeless.  1 of every 230 people in California is homeless.

14 Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered Despite some increases in homelessness in rural areas, urban areas represented a large percentage of the total homeless population in many states in 2008. For example:  Arizona: Nearly 6 in 10 homeless persons (58 percent) were located in the Phoenix/Mesa/Maricopa County CoC.  Arkansas: More than one-half of the total homeless population (56 percent) was located in the Little Rock/Central Arkansas CoC.  California: The Los Angeles City and County CoC had 44 percent of California’s total homeless population.  Colorado: Nearly 6 in 10 homeless persons (58 percent) were located in the Metropolitan Denver Homeless Initiative CoC.  Illinois: The Chicago CoC accounted for 41 percent of all homeless persons in Illinois.  Michigan: Almost two-thirds of homeless persons (64 percent) were located in the Detroit CoC. Exhibit 2-6: Percentage Change in the Point-in-Time Estimates of Homeless Persons by State, 2007-2008 Source: 2007 and 2008 Continuum of Care Application: Exhibit 1, CoC Point-in-Time Homeless Population and Subpopulations Charts

Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 15  Nevada: The Las Vegas/Clark County CoC contained 91 percent of the state’s total homeless population.  New Mexico: Albuquerque served more than 4 in 10 (42 percent) of the state’s homeless population.  New York: More than 8 of 10 homeless persons (82 percent) were located in the New York City CoC.  Pennsylvania: The Philadelphia CoC served nearly one-half of the homeless population (45 percent) in the state.  Utah: Two-thirds of homeless persons (67 percent) were located in Salt Lake City and County CoC. On the night of the January 2008 PIT count, one in five homeless persons (20 percent) was located in Los Angeles, New York, and Detroit. 2.3 PIT Counts of Homeless Subpopulations Information from CoC applications also includes counts of particular homeless subpopulations: people who are chronically homeless; people with severe mental illness; people who have substance abuse problems; veterans; unaccompanied youth; and people living with HIV/AIDS. Estimates of homeless subpopulations are only of sheltered homeless people. For many years, national policy was focused on ending chronic homelessness through funding incentives to develop permanent supportive housing and through the dissemination of best practice strategies for reducing chronic homelessness. Measuring the scope of chronic homelessness remains challenging, because the definition of chronic homelessness5 is based on both historical information about a person’s experiences being homeless and specific demographic characteristics, and because communities have difficulty collecting such information for their PIT counts. Thus, the PIT estimates of chronically homeless persons reported in CoC applications should continue to be interpreted as approximations. On a single night in January 2008, CoCs reported a total of 124,135 persons experiencing chronic homelessness or about 19 percent of the total homeless population and 30 percent of homeless individuals. The number of chronically homeless persons declined considerably between 2006 and 5 A chronically homeless person is defined as an unaccompanied homeless individual with a disabling condition who has either been continuously homeless for a year or more or has had at least four episodes of homelessness in the past three years. To be considered chronically homeless, a person must have been on the streets or in emergency shelter (e.g., not in transitional or permanent housing) during these stays. About 124,000 of those found homeless on a single night in January 2008 were chronically homeless people.

16 Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 2007, but was level between 2007 and 2008 (Exhibit 2-7). The PIT count of chronically homeless persons in 2008 is nearly identical to the count in 2007 (the difference is +302 people). The proportion of sheltered, chronically homeless persons has increased slightly from the previous two years, from 34 percent in 2006 and 2007 to 37 percent in 2008. Comparing the 2008 count with previous estimates should be done with care, especially for subpopulations, because about one-third of CoCs did not conduct a new PIT count in 2008, but rather reported counts from their 2007 enumeration on their 2008 application. However, if the analysis is restricted to CoCs that conducted actual counts in 2007 and 2008, the number of chronically homeless persons remains essentially the same. Nonetheless, several large cities that did counts in both 2007 and 2008 reported sizable declines in the number of persons who were chronically homeless: New York City (-26 percent); Phoenix (-20 percent); Philadelphia (-8 percent); and Boston (-7 percent). CoCs also report counts of other sheltered subpopulations in their applications. According to this information, on a single night in January 2008:  Veterans represented about 15 percent of the total sheltered adult population. Source: 2006 through 2008 Continuum of Care Application: Exhibit 1, CoC Point-in-Time Homeless Population and Subpopulations Charts 123,833 124,135 155,623 0 20,000 40,000 60,000 80,000 100,000 120,000 140,000 160,000 180,000 2006 2007 2008 Sheltered Unsheltered Total Number of Chronically Homeless Persons 34% 66% 34% 66% 37% 63% Exhibit 2-7: Point-in-Time Count of Chronically Homeless Persons, January 2006 – January 2008

Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 17  Persons living with HIV/AIDS accounted for 4 percent of sheltered adults and unaccompanied youth.  Recent victims of domestic violence comprised almost 13 percent of all sheltered persons.  Persons with severe mental illness represented about 26 percent of all sheltered homeless persons.  Persons with chronic substance abuse issues accounted for 37 percent of sheltered adults.  Unaccompanied youth represented 2 percent of the sheltered homeless population.6 The PIT estimates of homeless subpopulations are remarkably consistent for 2006, 2007, and 2008 (Exhibit 2-8). The proportion of sheltered homeless persons in each category fluctuates by a few percentage-points across the years, but generally, the patterns are level. 6 Information on homeless subpopulations may not be collected from all homeless persons, and as a result, the percentages reported in this report are based on different homeless populations (as the denominator in the percentage calculation). Subpopulation information is collected from sheltered adults only, sheltered adults and unaccompanied youth, or all sheltered persons. Exhibit 2-8: Point-in-Time Counts of Homeless Subpopulations, January 2006 – January 2008 Source: 2006 through 2008 Continuum of Care Application: Exhibit 1, CoC Point-in-Time Homeless Population and Subpopulations Charts 39.0% 36.4% 36.5% 25.3% 27.6% 26.3% 15.5% 15.0% 15.1% 12.8%13.0%12.6% 4.2%4.1%4.8% 2.1%2.2% 4.7% 0% 5% 10% 15% 20% 25% 30% 35% 40% 45% 2006 2007 2008 Chronic Substance Abusers Severely Mentally Ill Veterans Victims of Domestic Violence Unaccompanied Youth Persons with HIV/AIDS

18 Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered Who is Counted in the One-Year HMIS-based Estimates Reported in the AHAR? The one-year estimates account for sheltered homeless people who used an emergency shelter and/or a transitional housing program at any time from October 1, 2007 through September 30, 2008. The estimates do not account for: 1. Homeless persons who lived on the streets or in places not meant for human habitation and did not access a residential homeless program during the one-year reporting period. 2. Homeless persons who used only a domestic violence shelter and did not access a residential homeless program that serves the general homeless population.a 3. Homeless persons in the U.S. Territories or Puerto Rico. a Domestic violence shelters include rape crisis centers, battered women’s shelters, domestic violence transitional housing programs, and other programs whose primary mission is to provide services to victims of domestic violence, dating violence, sexual assault, or stalking. Pursuant to the Violence against Women and Department of Justice Reauthorization Act of 2005, domestic violence shelter providers are prohibited from entering client information into an HMIS. 2.4 Estimates of Sheltered Homeless Individuals and Families During a One-Year Period This section provides the estimates of the sheltered homeless population based on HMIS data that covers a 12-month reporting period. The estimates account for homeless people who used an emergency shelter and/or a transitional housing program at any time from October 1, 2007 through September 30, 2008. The annual estimates are based on an unduplicated count of persons served in emergency shelters and/or transitional housing, meaning that persons who used several residential facilities during the one-year reporting period are counted only once. The estimates are based on 427,201 records of homeless persons from 222 jurisdictions nationwide, statistically adjusted to produce the national estimates. Estimate of Sheltered Homeless Persons during a One-Year Period About 1,594,000 persons used an emergency shelter or a transitional housing program during the 12-month period October 1, 2007 through September 30, 2008, suggesting that about 1 in every 190 persons in the United States used a homeless residential facility at some point

Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 19 during that time (see Exhibit 2-9).7 The nation’s sheltered homeless population included approximately 1,092,612 individuals (68.6 percent) and 516,724 persons in families (32.4 percent). Considered as households rather than separate people, there were 159,142 sheltered homeless families, representing about 14.4 percent of all sheltered homeless households.8 The total number of sheltered homeless persons was fairly stable between 2007 and 2008, increasing slightly by about 5,200 people (or 0.3 percent). However, the household composition of the sheltered homeless population shifted appreciably. Homelessness among individuals remained relatively unchanged, whereas homelessness among persons in families increased by about 43,000 (or 9 percent). Accordingly, the share of family households among all sheltered households also increased, by nearly 3 percentage points, from 11.7 7 According to the U.S. Census Bureau, the estimated total U.S. population was 304,059,724 persons on July 1, 2008. 8 There were 1,092,612 homeless individuals, nearly all of whom were individual adult males, individual adult females, or unaccompanied youth. There were also 20,488 adults in multi-adult households. Assuming 2 adults per multi-adult household and each individual as a household, the percent of households that were families is 14.4 percent (or 159,142 divided by 1,102,856). Exhibit 2-9: Estimates of Sheltered Homeless Individuals and Persons in Families During a One-Year Period, 2007-2008 2007 2008 Total Number % of Sheltered Homeless Population Total Number % of Sheltered Homeless Population Total Number of Sheltered Personsa 1,588,595 c 100% 1,593,794 c 100% Individualsb 1,115,054 d 70.2% 1,092,612 d 68.6% Persons in families 473,541 d 29.8% 516,724 d 32.4% Number of Sheltered Households with Children 130,968 — 159,142 — a These estimated totals reflect the number of homeless persons in the 50 states and the District of Columbia who used emergency shelters or transitional housing programs during the one-year period from October 1 through September 30 of the following year. The estimates do not cover the U.S. Territories and Puerto Rico and do not include persons served by “victim service providers.” The estimated totals include an extrapolation adjustment to account for people who use emergency shelters and transitional housing programs but whose jurisdictions do not yet participate in their respective HMIS. However, a homeless person who does not use an emergency shelter or transitional housing during the 12-month period is not included in this estimate. Percentages may not sum to 100 percent due to rounding. b This category includes unaccompanied adults and youth as well as multi-adult households without children. c This estimate includes unaccompanied individuals and persons in households. In 2007, the 95 percent confidence interval for the estimated number of sheltered homeless persons in the population was 1,043,775 to 2,133,415 persons (or +/- 544,820 persons). In 2008, the 95 percent confidence interval is 1,180,758 to 2,006,830 (or +/- 413,036 persons). d In both 2007 and 2008, approximately 1 percent of homeless persons were served both as an unaccompanied individual and a person in a family. In this exhibit, such people appear in both categories in 2008, so the total number of sheltered persons is slightly less than the sum of individuals and families. Source: Homeless Management Information System data, 2007-2008

20 Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered percent in 2007 to 14.4 percent in 2008. Chapter 4 explores trends in sheltered homelessness among individuals and persons in families in greater detail. The share of sheltered homeless people who are individuals or persons in families differs between the one-day count and the count over the course of a year (see Exhibit 2-10). In 2008, about 338,900 people were in an emergency shelter or a transitional housing program on an average day, about 21 percent of the total annual estimate. On an average night, individuals represented 57 percent of the sheltered population, and persons in families represented 43 percent.9 However, the one-day estimates of the split between individuals and family members were very different from the one-year-estimates, which show that individuals comprised about 68 percent of people in shelters at some time during the year were individuals and only 32 percent were persons in families. The larger share of persons in families on an average day compared to a longer period is a pattern that has been observed in previous Annual Homeless Assessment Reports. The pattern highlights how individuals and persons in families use shelter differently. Families stay in shelters for longer periods than individuals. As a result, persons in families are more 9 The HMIS-based estimate for an average day between October 2007 and September 2008 was only slightly lower than the PIT estimate for a particular day in January 2008: about 386,400 people, of whom 53 percent were individuals and 47 percent persons in families. Although national estimates of the sheltered homeless population show little change since 2007, homelessness increased by 9 percent among persons in families. Exhibit 2-10: Difference in Share of Sheltered Homeless Individuals and Persons in Families Between Average Night and Annual Estimates, 2008 Source: Homeless Management Information System data, 2008 Average Night Estimate (N=338,910) 43.1% 56.9% Individuals Persons in Families One-Year Estimate (N=1,593,794) 32.4% 68.6% Individuals Persons in Families

Chapter 2: National Estimates of All Homeless People, Sheltered and Unsheltered 21 likely to be present on any particular day, and the share of persons in families will be higher on an average day than over the course of a year. The share of sheltered homeless people represented by persons in families diminishes over time (e.g., 3 months, 6 months, or 12 months) as more individuals cycle in and out of the shelter system.10 Chapter 3 provides more detail on the patterns of shelter use for homeless individuals and families. 2.5 Summary of the National Estimates of All Homeless People In summary, the single-night, PIT count estimates are that:  664,000 people were homeless in shelters or unsheltered, a 1 percent decline from 2007. More than three-fifths (62 percent) were individuals and about two-fifths (38 percent) were persons in families.  Nearly 6 in 10 homeless persons (58 percent) were in an emergency shelter or transitional housing program and the rest were unsheltered—that is, in places not meant for human habitation.  In 2008, states with the highest estimates of homeless persons as a percent of each state’s total population were Oregon, Nevada, and Hawaii (1 in every 200 people) and California (1 in every 230 people). These states also had high concentrations of homeless persons in both 2006 and 2007. Homelessness continues to be concentrated in CoCs that cover major U.S. cities. The one-year estimates based on HMIS are that:  About 1,594,000 people used an emergency shelter and/or a transitional housing program during the 12-month period October 1, 2007 through September 30, 2008, suggesting that about 1 in every 190 people in the United States experienced sheltered homelessness.  The total number of sheltered homeless persons remained relatively unchanged between 2007 and 2008. However, whereas homelessness among individuals was fairly stable, homelessness among persons in families increased by about 9 percent. 10 The 2007 Annual Homeless Assessment Report provides estimates of seasonal trends in the number of sheltered homeless people and the split between individuals and families, showing that estimates of the number of homeless individuals peak in January and reach their lowest point in October. Estimates of sheltered persons in families do not vary as much; they are highest during April and lowest in October. The 2008 HMIS-based estimates of seasonal trends are similar.

Chapter 3: Sheltered Homeless People in 2008 23 Characteristics of All Sheltered Persons, 2008  Adult men (64 percent of adults)  Minority (62 percent of all persons)  Age 31 to 50 (40 percent of all persons)  Alone (67 percent of all persons)  Disabled (43 percent of all adults) Chapter 3 Sheltered Homeless People in 2008 This chapter provides a profile of the roughly 1.6 million people who used an emergency shelter or transitional housing program at some time from October 2007 through September 2008. The chapter is based on HMIS data reported by 222 jurisdictions nationwide, weighted to represent the entire nation. The chapter focuses on:  The demographic characteristics of sheltered homeless people. Who were the sheltered homeless? How did the characteristics of homeless persons compare to those of the overall population living in poverty and the U.S. population as a whole?  The location of homeless service use. In what types of communities (urban, suburban or rural) did people use emergency and transitional housing programs? Where did they stay before using residential homeless services?  The patterns of homeless service use. How did people use emergency and transitional housing programs? How long did people stay in homeless residential facilities? Each of these topics is discussed for the total sheltered population and then separately for individuals and for persons in families. The HMIS-based estimates of sheltered homeless individuals include single adults, unaccompanied youth, persons in multi-adult households, and persons in multi-child households. A multi-adult household is a household composed of adults only—no children are present. A multi-child household is composed of children only (e.g., parenting youth)—no adults are present. The HMIS-based estimates of homeless persons in families include persons in households with at least one adult and one child. 3.1 Characteristics of People Using Homeless Shelters, 2008 Approximately 68 percent of the 1,594,000 sheltered homeless people were homeless as individuals and 32 percent were persons in families. As displayed in Exhibit 3-1, more than two-thirds of sheltered individuals were single adult men, and about one-quarter were single adult women. Very few people were homeless together with other adults but no children, and very few were unaccompanied or parenting youth. Among persons in families, 60 percent were children under age 18, and 40 percent were adults.

24 Chapter 3: Sheltered Homeless People in 2008 Characteristics of All Sheltered Persons A homeless person looks similar to a low-income housing tenant or other poor person, but considerably different from a typical person in the overall U.S. population (see Exhibit 3-2). Among the most common demographic features of sheltered homeless persons they are: male,11 members of minority groups, older than age 31, and alone. More than two-fifths of sheltered homeless persons are disabled.12 This demographic profile is likely to agree with commonly held perceptions about who is homeless in the United States. But while accurate, these perceptions should not overlook sizable segments of the sheltered homeless population that are white, non-Hispanic (38 percent), children (20 percent), homeless together with at least one other person (33 percent), or veterans (12 percent). 11 Males represent 63 percent of the sheltered adult population and 61 percent of all sheltered homeless people. The gender of children who are homeless is almost evenly split between males and females, similar to the overall U.S. population. 12 According to HUD’s HMIS Data and Technical Standards (69 FR 45888, July 30, 2004), a disabling condition includes a diagnosable substance abuse disorder. However, the U.S. Census Bureau does not include substance abuse disorders as a form of disability, and thus the broader definition used by HUD is likely to result in larger estimates of homeless persons with disabilities compared to the U.S. poverty and general population. Sheltered Individuals Persons in Families Exhibit 3-1: Household Composition of Sheltered Individuals and Persons in Families, 2008 39.7% 60.3% Adults in households with children Children in households with adults 70.2% 1.9%2.0% 25.9% Single adult male Single adult female Unaccompanied youth and several-children households Several-adult households Sources: Homeless Management Information System data, 2008

Chapter 3: Sheltered Homeless People in 2008 25 Exhibit 3-2 Demographic Characteristics of Sheltered Homeless Persons in 2008 Compared to the 2007 U.S. and Poverty Populations Characteristic Percentage of All Sheltered Homeless Persons, 2008 Percentage of the 2007 U.S. Poverty Population Percentage of the 2007 U.S. Population Gender of Adults Male 64.0% 39.9% 48.7% Female 36.0% 60.1% 51.3% Ethnicity Non-Hispanic/non-Latino 80.5% 75.7% 85.0% Hispanic/Latino 19.5% 24.3% 15.0% Race White, Non-Hispanic 37.9% 45.7% 65.8% White, Hispanic 11.6% 12.9% 8.1% Black or African American 41.7% 23.1% 12.4% Other Single Race 3.4% 15.5% 11.5% Multiple Races 5.4% 2.8% 2.2% Age a Under age 18 20.4% 34.0% 24.6% 18 to 30 22.5% 23.6% 18.1% 31 to 50 40.3% 22.2% 28.6% 51 to 61 14.0% 8.9% 13.6% 62 and older 2.8% 11.0% 15.2% Household Size b 1 person 66.7% 37.3% 47.5% 2 people 9.3% 4.8% 2.2% 3 people 9.5% 13.0% 11.5% 4 people 7.0% 16.7% 18.2% 5 or more people 7.5% 28.2% 20.5% Special Populations Veteran (adults only) c 11.6% 5.1% 10.5% Disabled (adults only) c 42.8% 30.7% 17.7% a Age is calculated based on a person’s first time in shelter during the one-year reporting period. b If a person is part of multiple households or the household size changed during the reporting period, the household size reflects the size of the first household in which the person presented during the one-year reporting time period. c Veteran and disability status are recorded only for adults in HMIS. The percentage calculations shown indicate the percent of homeless adults with this characteristic. Numerous records were missing information on disability status (22.0 percent) and veteran status (7.5 percent) in 2008. The percentage calculations include only persons whose disability and veteran status was known. Sources: Homeless Management Information System data, 2008; 2007 American Community Survey

26 Chapter 3: Sheltered Homeless People in 2008 Nonetheless, the demographic groups that are overrepresented in the homeless population relative to the U.S. population as a whole are African Americans, adult males, single-person households, people age 31 to 50, and people with a disability. Veterans are also slightly overrepresented in the homeless population when compared to the overall U.S. population. African Americans. In 2008, African Americans comprised 41.7 percent of the homeless population, almost 3.5 times their share of the U.S. population. African Americans are disproportionately represented in the poverty population, but they are even more disproportionately represented in the homeless population. They represent a share of the homeless population 1.8 times higher than their share of the poverty population. The disproportionate representation of African Americans in the homeless population is related to urban concentrations of homelessness. According to data from the U.S. Census Bureau, about 53 percent of the African American population lives in principal cities compared to 23 percent of the white non–Hispanic population and 47 percent of the white Hispanic population. Adult males. Adult men were heavily overrepresented in the homeless population. More than three-fifths of homeless adults were men (64.0 percent) compared to 48.7 percent of the overall population and only 39.9 percent of the poverty population. The large proportion of adult men in the shelter system probably reflected several factors. Single men who are poor may be more vulnerable to homelessness because of large gaps in the Unemployment Insurance program and because the largest safety net programs, such as Temporary Assistance for Needy Families (TANF) and Social Security, are for families or elderly people. The share of unemployed workers receiving unemployment insurance has declined in recent decades and is currently only 37 percent.13 The sizable gap in unemployment insurance coverage may be particularly perilous for men because poor women are likely to be accompanied by children and thus eligible for TANF. Adult poor men also have higher rates of substance abuse than women, but substance abuse has not been a categorical eligibility criterion for SSI since 1996. Thus, some women may fall through one social safety net but be caught by another; men may miss them all. In addition, men are more likely than women to have institutional histories that are related to homelessness, including incarceration. And finally, relatives may feel a stronger need to give a temporary home to families with children than they do to single men. However, the share of sheltered homeless men reported in the AHAR may be artificially high. Some shelters have policies prohibiting men over a certain age from sleeping in family shelters, requiring men and teenage boys to stay at men’s shelters alone. As a result, some of 13 Stone, Chad, Robert Greenstein, and Martha Coven. 2007. Addressing Longstanding Gaps in Unemployment Insurance Coverage. Washington D.C.: Center on Budget and Policy Priorities.

Chapter 3: Sheltered Homeless People in 2008 27 the men who are being counted in the AHAR as unaccompanied individuals may be part of intact families that are housed elsewhere.14 Also, the HMIS data presented here do not include adults served by domestic violence providers, most of whom are women. Single-person households. Two-thirds (67 percent) of the total sheltered population were in single-person households, nearly 2 times the proportion of these households in poverty and about 1.5 times the national proportion. As shown in Exhibit 3-1, most homeless people in single- person households were men, and thus the reasons both single-person households and men are disproportionately represented in the sheltered homeless population are likely the same. People age 31 to 50. Two-fifths (40 percent) of the sheltered homeless population were between the ages of 31 to 50, compared to only 29 percent of the total U.S. population and 22 percent of the poverty population. Middle-aged people may be more likely to be homeless because substance abuse or mental illness issues become more acute during this life stage. If people have struggled for a while because of mental health, substance abuse, or financial issues, by age 30 or older they may have exhausted their alternatives for living with friends and family. The shelter system may be their last remaining option. People with disabilities. Among adults, 17.7 percent of the U.S. population had a disability whereas an estimated 42.8 percent of sheltered homeless adults had a disability.15 A disability, particularly one relating to substance abuse or mental health issues, can make it difficult to work enough to afford housing. Indeed, the higher share of adults with disabilities in the poverty population (30.7 percent) relative to the U.S. population is an indication of this difficulty. People with disabilities are an even higher share of the homeless population than the poverty population, suggesting that disabled persons face additional difficulties in gaining access to permanent housing. People with disabilities may have difficulties searching for a unit or finding a landlord willing to rent to them. Their disability may make it less easy to accommodate them without adaptive supports. Also, the ability of SSI and SSDI to avert homelessness among persons with disabilities is uncertain. In 2009, the average monthly SSI payment was $50416 (or about $6,048 annually) and 14 A study of patterns of homelessness among families in four communities—Houston TX, Washington DC, Kalamazoo MI, and upstate South Carolina—tracked people from their first entry into the homeless services system (based on HMIS data) for 18 months (30 months in DC) and found that many adults who were homeless as part of a family during part of the tracking period used shelters for individuals at other times during the tracking period. Brooke Spellman, Jill Khadduri, Brian Sokol, and Josh Leopold, Costs Associated with First-Time Homelessness for Families and Individuals. U.S. Department of Housing and Urban Development, forthcoming 2009. 15 HUD’s definition of disabling condition is broader than the definition used by the U.S. Census Bureau. See footnote 12 for more information. 16 U.S. Social Security Administration Office of Retirement and Disability Policy. Monthly Statistical Snapshot, March 2009. Available at http://www.ssa.gov/policy/docs/quickfacts/stat_snapshot/.

28 Chapter 3: Sheltered Homeless People in 2008 Characteristics of Sheltered Individuals, 2008  Men alone (73 percent of adults)  Minority (55 percent of all persons)  Age 31 to 50 (52 percent of all persons)  Alone (98 percent of all persons)  Disabled (47 percent of adults) the poverty rate for a single-person household was $10,830.17 Accordingly, the average annual SSI payment is about 44 percent below the poverty level, and thus people with disabilities who lack a sufficient work history to qualify for SSDI—common among people with severe mental illness or substance abuse issues—are more susceptible to deep poverty. Veterans. The national estimates also show that veterans are slightly more likely to be represented in the sheltered homeless population than the general population. They comprise an estimated 11.6 percent of the adult homeless population compared to 10.5 percent of the U.S. adult population. But veterans are a much smaller share of the adult poverty population (5.1 percent) than the homeless population, in part because the adult poverty population includes fewer adult men who are the most likely to be veterans. The estimated number of homeless veterans should be watched closely as the number of veterans returning from recent combat increases during the next few years. Characteristics of Sheltered Homeless Individuals Most sheltered homeless individuals are men. In 2008, 70 percent of the roughly 1.1 million people who were in emergency shelter or transitional housing programs as individuals were men and only 26 percent were adult women staying alone (as shown in Exhibit 3-1). Seventy- three percent of the individual adult population are men (see Exhibit 3-3). For every 100 men living by themselves with income below the poverty line, 12 are likely to be in the sheltered homeless population at some time over the course of a year compared to 4 of every 100 women living alone in poverty. In contrast to individual sheltered homeless people, 55 percent of poor adults living alone are women. There is little research that explains why single men may more often go to shelters than single women. Exhibit 3-3 shows some other demographic features of the sheltered homeless population separately for individuals and for persons in families. Even though the majority of all sheltered persons are minorities, almost half of all individuals (44.6 percent) are non-Hispanic whites. Thus, many whites and minorities experience homelessness differently—whites more often as single persons and minorities more often as persons with accompanying children. 17 U.S. Department of Health and Human Services. The 2009 HHS Poverty Guidelines. Washington, DC. Available at http://aspe.hhs.gov/poverty/09poverty.shtml.

Chapter 3: Sheltered Homeless People in 2008 29 Exhibit 3-3: Demographic Characteristics of Sheltered Homeless Persons by Household Type, 2008 Characteristic Percentage of All Sheltered Homeless Population Percentage of Individuals Percentage of Persons in Families Gender of Adults Male 64.0% 72.5% 19.2% Female 36.0% 27.5% 80.8% Ethnicity Non-Hispanic/non-Latino 80.5% 83.0% 74.6% Hispanic/Latino 19.5% 17.0% 25.4% Race White, Non-Hispanic 37.9% 44.6% 24.4% White, Hispanic 11.6% 11.0% 13.1% Black or African-American 41.7% 37.0% 50.9% Other Single Race 3.4% 2.8% 4.8% Multiple Races 5.4% 4.7% 6.8% Age a Under age 18 20.4% 2.0% 60.3% 18 to 30 22.5% 22.5% 21.5% 31 to 50 40.3% 51.5% 16.7% 51to 61 14.0% 20.0% 1.3% 62 and older 2.8% 4.0% 0.2% Household Size b 1 person 66.7% 97.8% 0.0% 2 people 9.3% 1.9% 25.0% 3 people 9.5% 0.2% 29.6% 4 people 7.0% 0.1% 21.8% 5 or more people 7.5% 0.0% 23.7% Special Populations Veteran (adults only) c 11.6% 13.4% 2.0% Disabled (adults only) c 42.8% 47.1% 18.4% a Age is calculated based on a person’s first time in shelter during the one-year reporting period. b If a person is part of multiple households or the household size changed during the reporting period, the household size reflects the size of the first household in which the person presented during the one-year reporting time period. c Veteran and disability status are recorded only for adults in HMIS. The percentage calculations shown indicate the percent of homeless adults with this characteristic. Numerous records were missing information on disability status (22.0 percent) and veteran status (7.5 percent) in 2008. The percentage calculations include only persons whose disability and veteran status was known. Source: Homeless Management Information System data, 2008

30 Chapter 3: Sheltered Homeless People in 2008 A larger proportion of adult individuals are disabled or veterans compared to all sheltered homeless adults. Nearly half (47.1 percent) of adult individuals have disabilities, and 13.4 percent of adult individuals are veterans. Extensive research has shown high rates of alcohol/drug abuse and mental health problems among homeless adults. The higher rate of veterans among individuals compared with all homeless adults reflects the fact that the overwhelming majority of sheltered individuals are men. The most common age group among sheltered homeless individuals is 31-50. Only 4 percent of sheltered homeless individuals are 62 or older, much lower than the 27 percent of poor persons living alone in that age group (Exhibit 3-4). The scarcity of elderly people in the homeless population may reflect two factors: high early mortality and premature disability among persons experiencing chronic homelessness18 and the strong social safety net in the United States for people aged 65 or older, including Supplemental Security Income (SSI), Social Security, Medicare, and public and other assisted housing for seniors. This safety net should help most vulnerable older single individuals avoid having to go to a shelter to secure a roof over their heads. 18 Barrow, S.M., D.B. Herman, P. Cordova, and E.L. Struening. 1999. Mortality among Homeless Shelter Residents in New York City. American Journal of Public Health, pp. 529-534; Hibbs, J. R., L. Benner, Lawrence, B., R.S. Klugman, I. Macchia, A. K. Mellinger, and D. Fife. 1994. Mortality in a Cohort of Homeless Adults in Philadelphia, The New England Journal of Medicine, Vol. 331(5): 304-309. Exhibit 3-4: Age Distribution of Sheltered Homeless Adult Individuals in 2008 Compared to Age Distribution of Persons in Poverty Living Alone in 2007 Sources: Homeless Management Information System data 2008; 2007American Community Survey 21% 31% 55% 24% 20% 19% 4% 27% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Sheltered Adult Individuals, 2008 Individual Persons in Poverty, 2007 18 to 30 31 to 50 51 to 61 62 and older

Chapter 3: Sheltered Homeless People in 2008 31 Characteristics of Sheltered Persons in Families, 2008  Female adults (81 percent of adults)  A minority (76 percent of all persons)  Children Under 6 (51 percent of children)  Two or 3-person households (55 percent of all persons) Characteristics of Sheltered Persons in Families In 2008, there were about 517,000 persons in families, representing 32 percent of all sheltered persons. Considered as households rather than separate people, there were about 159,000 sheltered families (or 14.4 percent of all sheltered homeless households). The most common demographic features of sheltered family members are that adults are women, children are young, the family identifies itself as belonging to a minority group, and the family has 2 or 3 members. Very few persons in families are veterans (2 percent), and less than 1 in 5 of the adults in families has a disability. Adults who become homeless together with children are usually, but not always, women. In 2008, 19 percent of adults in families with children were men. Presumably most adults are parents of the children that accompany them, although some may be grandparents or other relatives. By comparison, men represent 33 percent of all adults in families living in poverty. 19 Many persons in families are minorities, especially African Americans and Hispanics. Less than one-quarter of sheltered persons in families were white and not Hispanic (24 percent). A much higher percentage of sheltered homeless families were African American than of families in the poverty population (51 versus 26 percent), while a lower percentage of sheltered homeless family members were Hispanic or Latino compared to the poverty population (25 versus 31 percent). A typical homeless family consists of a mother and either one or two children (the average number of children is 1.5). Such families would need a two-bedroom apartment or house for 19 People who become homeless as individuals also may be parents of minor children. Children of homeless individuals may be in the custody of the other parent, may have been left in someone else’s care rather than brought into a shelter, or may have been placed out-of-home by the child welfare system. Burt, Martha, Laudan Y. Aaron, and Edgar Lee, Helping America’s Homeless. Washington DC: Urban Institute Press, 2001, provides estimates based on the National Survey of Homeless Providers and Clients of the percentage of all homeless people who are parents of minor children. A study that used HMIS data to track homeless families in Houston TX, Washington DC, Kalamazoo MI, and Upstate South Carolina for an 18-month period used a somewhat different definition of family from the AHAR. For that study, a group of people was considered a family if it included both an adult and a child during any homeless program stay over the tracking period, whereas the AHAR defines a family as an adult with an accompanying child at the point of first entry into a residential program for homeless people. The study of homeless families in four communities found that a high percentage of families that had more than one program stay during the tracking period changed household composition between stays and that adult members of families sometimes appeared in programs for individuals during the 18-month tracking period. Spellman, Khadduri, Sokol, and Leopold, op. cit.

32 Chapter 3: Sheltered Homeless People in 2008 permanent housing. Homeless families have smaller household sizes than the poverty population in general (Exhibit 3-5), resulting from a combination of fewer two-adult households and fewer households with more than two children. Homeless families may have additional children who are not with them in a residential program for homeless people because they have been left with relatives or friends or experienced out-of-home placements by the child welfare system. Exhibit 3-5: Household Sizes of Sheltered Homeless Families and Poor Families 2008 Household Size Percentage of ShelteredHomeless Families Percentage of Poor Families 2 people 25.1% 7.7% 3 people 29.5% 20.7% 4 people 21.8% 26.6% 5 or more people 23.6% 44.9% Sources: Homeless Management Information System data, 2008 Sheltered families are young. More than half (54 percent) of the adults in families were between age 18 and 30, representing a considerably larger number than the 42 percent of adults in poor families who are that young.20 The younger age of parents could help explain the smaller household sizes of sheltered homeless families compared to all poor families. Homeless children in emergency shelters and transitional housing were also relatively young. More than half (51 percent) were under age 6, and another 34 percent were age 6 to 12, while only 15 percent were age 13 to17 (Exhibit 3-6).21 20 Adults in sheltered families also are younger on average than individual sheltered homeless people. This is not surprising given that adults in sheltered homeless families are mainly women currently or recently of childbearing age. 21 Recall that, for this analysis, the definition of a family is a household with at least one adult (age 18 or older) and at least one child (age 17 or younger). An under 18-year old homeless teenager with her child and no adults are counted as two individuals. Exhibit 3-6: Age Distribution of Children in Sheltered Homeless Families Sources: Homeless Management Information System data, 2008 34% 15% 51% Percent Under Age 6 Percent Age 6 to 12 Percent Age 13 to 17

Chapter 3: Sheltered Homeless People in 2008 33 3.2 Location of Homeless Service Use, 2008 Geographic Location of Sheltered Homeless Persons In 2008, sheltered homelessness was concentrated in urban areas (see Exhibit 3-7). More than two-thirds of all sheltered homeless people were located in principal cities, with 32 percent located in suburban or rural jurisdictions. Nearly 1 in every 66 persons living in principal cities in the United States was homeless, compared with about 1 in every 450 persons living in suburban or rural areas. The geographic distribution of the sheltered homeless population varied somewhat by household type. Individuals were more likely than persons in families to be in urban areas. Seventy-one percent of individuals accessed residential services in principal cities in 2008 compared with 62 percent of persons in families. Exhibit 3-7 also shows that the share of sheltered homeless persons in principal cities was almost twice the share of the poverty population in principal cities (68 versus 36 percent) and almost three times the share of the entire population in principal cities, which was only 24 percent. Thus, while suburbanization has taken hold for most Americans since the 1950s, the homeless sheltered population is found largely in principal cities. The concentration of homeless persons in urban areas is related to several issues. Principal cities have structural factors that may make homelessness more common, including high rates of unemployment and lack of affordable housing. Also, high demand for services may saturate the social service system in large cities, which may limit the ability of these systems to adequately serve persons at risk of becoming homeless. In addition, the concentration of homeless persons in urban areas may be driven in part by the concentration of homeless residential programs in these areas. As discussed in chapter 5, the majority of residential homeless service providers (53.6 percent) and nearly two-thirds of all service beds (66.4 percent) are located in principal cities. Thus, it is possible that homelessness appears to be mostly an urban phenomenon because homeless people move to areas where services are abundant. However, interpreting the potential association between the location of homeless people and the location of service providers raises the proverbial “chicken or the egg” conundrum: do homeless people move to service-rich areas or are service providers purposively located where the demand for services is greatest? Data from HMIS cannot disentangle these questions of cause and effect. Not surprisingly, the characteristics of homeless persons in urban versus suburban/rural areas varied much like the characteristics of individuals versus persons in families. Compared with their suburban/rural counterparts, sheltered persons in urban areas were more likely to be male (66.6 percent versus 58.0 percent) and one-person households (69.7 percent versus 60.4 percent).

34 Chapter 3: Sheltered Homeless People in 2008 Movement into the Shelter System, 2008 Compared to sheltered persons in families, individuals were:  1.5 times more likely to come from an existing homeless situation  5.7 times more likely to come from an institutional setting  1.6 times less likely to be housed on their own or with family or friends Movement into the Shelter System In addition to the type of location where people receive homeless residential services, communities participating in the AHAR also provided information on where people stayed the night before they entered the shelter system. In 2008, the night before entering an emergency shelter or transitional housing facility, about two-fifths of all sheltered persons came from another homeless situation, two-fifths moved from a housed situation (their own or someone else’s home), and the remaining one-fifth were split between institutional settings (e.g., a psychiatric hospital or jail) and hotels, motels, or other unspecified living arrangements (see Exhibit 3- 8). The most common prior living arrangements were staying with friends or family (28.5 percent) and staying in another homeless residential service facility (24.3 percent). About 13 percent were on the streets or another place not meant for human habitation the night before program entry, and a similar proportion came from a home they rented or owned. Exhibit 3-7: Geographic Distribution of the Sheltered Homeless Population by Household Type, 2008 Sources: Homeless Management Information System data, 2008 68.0% 71.0% 61.7% 36% 24% 32.0% 29.0% 38.3% 64% 76% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Percentage of All Sheltered Persons Percentage of All Sheltered Individuals Percentage of All Sheltered Persons in Families U.S. Poverty Population Total U.S. Population Principal Cities Suburban and Rural Areas

Chapter 3: Sheltered Homeless People in 2008 35 A comparison of living arrangements between sheltered individuals and persons in families reveals several striking differences. More than 6 in 10 persons in families came from a housing situation, with most staying with family and friends. Only about one-quarter of persons in families were already homeless prior to entering the shelter system during the one- year reporting period, and very few were in institutional settings. By comparison, fewer than 4 in 10 individuals came from a housing situation, two-fifths were already homeless, and more than 1 in 10 came from an institutional setting. Thus, for individuals, the most common pathway into the shelter system during the one-year reporting period was another homeless location, whereas among persons in families it was from a “housed” situation. Exhibit 3-8: Previous Living Situation of People Using Homeless Residential Services, 2008 a Living Arrangement the Night before Program Entry Total Percentage of Individual Adults b Percentage of Adults in Families Total Already Homeless 37.2% 39.4% 25.9% Place not meant for human habitation 12.9% 14.7% 4.0% Emergency shelter or transitional housing 24.3% 24.8% 22.0% Total from “Housing” 41.0% 37.0% 61.5% Rented or owned housing unit c 12.5% 11.2% 19.2% Staying with family 16.4% 14.2% 27.8% Staying with friends 12.1% 11.6% 14.5% Total from Institutional Settings 11.9% 13.6% 2.4% Psychiatric facility, substance abuse center, or hospital 6.7% 7.6% 1.8% Jail, prison, or juvenile detention 4.8% 5.6% 0.5% Foster care home 0.4% 0.4% 0.1% Total from Other Situations 10.1% 10.0% 10.2% Hotel, motel (no voucher) or “other” 10.1% 10.0% 10.2% Number of Homeless Adults 1,283,272 1,092,612 203,199 a The exhibit reports on adults and unaccompanied youth only because the HMIS Data and Technical Standards require the information to be collected only from these persons. About 21 percent of the records in HMIS were missing this information in 2008. b This category includes unaccompanied adults and youth as well as multiple-adult households without children. c Includes a small percentage in permanent supportive housing. Sources: Homeless Management Information System data, 2008

The 2008 Annual Homeless Assessment Report

36 Chapter 3: Sheltered Homeless People in 2008 3.3 Patterns of Homeless Service Use, 2008 Emergency Shelters or Transitional Housing In 2008, most of the 1,594,000 sheltered homeless people used an emergency shelter only (77 percent or 1,228,224 persons), while a smaller number used only a transitional housing program only (about 18 percent or 280,877 persons). As shown in Exhibit 3-9, few persons used both an emergency shelter and transitional housing during the 12-month period (5 percent or 84,693 persons). These estimates reinforce findings from previous AHARs that few sheltered homeless persons follow a linear progression through the shelter system during the 12-month period— e.g., from emergency shelters to transitional housing (and then to permanent housing). Recent research has similarly concluded that few homeless persons use the shelter system sequentially. Most homeless people—both individuals and families—enter and exit homeless residential programs just one time, while others have multiple program “stays” but usually not in a linear sequence.22 Indeed, homelessness is mostly an episodic or short- term phenomenon—that is, people cycle through the homeless system quickly and may not stay in the system for long periods of time— and, as a result, many homeless persons do not use transitional housing.23 The short-term nature of homelessness may be aided by program models (e.g., Housing First and Rapid Re- housing) that attempt to place homeless persons directly into permanent housing from emergency shelters or the streets, thereby bypassing transitonal housing programs. The type of residential homeless program used varies somewhat by household type. More than four-fifths of sheltered homeless individuals (81 percent) used only emergency shelters in 22 Spellman, Khadduri, Sokol, and Leopold, Costs Associated with First-Time Homelessness for Families and Individuals, op. cit. 23 Culhane, D.P., S. Metraux, J.M. Park, M.A. Schretzmen, and J. Valente. 2007. Testing a Typology of Family Homelessness Based on Public Shelter Utilization in Four U.S. Jurisdictions: Implications for Policy and Program Planning. Housing Policy Debate, 18(1): 1-28. Kuhn, R., and D.P. Culhane. 1998. Applying Cluster Analysis to Test of a Typology of Homelessness: Results from the Analysis of Adminstrative Data. American Journal of Commnity Psychology, 17(1): 23-43. Source: Homeless Management Information System data, 2008 Exhibit 3-9: Type of Program Used Among All Sheltered Homeless People, 2008 Emergency Shelters Only 77.1% 5.3% Both Emergency Shelters and Transitional Housing 17.6% Transitional Housing Only

Chapter 3: Sheltered Homeless People in 2008 37 2008, compared with 69 percent of persons in families. Part of the explanation may be the relative supply of different types of residential homeless programs for individuals versus families, a topic discussed in chapter 5. Length of Stay in Emergency Shelters and Transitional Housing Most people who enter a homeless residential facility leave quickly, but the amount of time spent varies considerably by program and by household type (see Exhibit 3-10). Three-fifths of those using emergency shelters stayed less than a month in total, and a third stayed only a week. Individuals in emergency shelters stayed the shortest amount of time: 65 percent stayed less than a week, and only 5 percent stayed for 6 months or more. The median length of stay for individuals in emergency shelters was 18 days. By comparison, families in emergency shelters stayed longer: 50 percent of persons in families spent a week or less; 10 percent stayed for 6 months or more; and the median length of stay was 30 days. Exhibit 3-10:Number of Nights in Shelter by Program and Household Type, 2008 Emergency Shelters Transitional Housing Length of Stay a Total Individuals Persons in Families Total Individual Persons in Families Percentage of People 1 week or less 33.3% 37.4% 23.5% 5.7% 6.2% 5.1% 1 week to < 1 month 27.5% 27.8% 26.7% 12.6% 14.3% 10.3% 1 month to < 6 months 32.8% 29.8% 40.3% 42.0% 44.6% 38.6% 6 months to < 1 year 4.7% 3.9% 6.7% 21.7% 18.5% 25.9% Entire year 1.6% 1.1% 2.8% 18.0% 16.4% 20.1% Average (Median) Time # of nights 21 18 30 130 107 161 a The length of stay reported in this exhibit accounts for the total number of nights in shelters during the 12-month reporting period. Some people may have lengths of stay longer than a year if they entered a residential program prior to the start of the data collection period or remained in the program after the end of the data collection period. Source: Homeless Management Information System data, 2008 Families stay in shelter for longer periods of time for several reasons. Unsheltered homelessness can be particularly dangerous for families with children, and thus families are more likely to stay in shelters until other housing accommodations are available. Also, families may have a more difficult time finding housing—on their own or with family or friends—because they need additional space. More than a fifth of persons in families were in households with 5 or more family members (see Exhibits 3-3 and 3-5), and the availability of appropriately-sized, affordable housing for these families may be especially limited.

38 Chapter 3: Sheltered Homeless People in 2008 People in transitional housing programs generally stay for much longer periods of time. About 40 percent of all persons stayed in transitional housing for 6 months or more in 2008, with many staying for the full 12-month reporting period. Here again, persons in families stayed longer than individuals. The median number of days among persons in families was 161 compared to 107 for individuals. The longer lengths of stays in transitional housing are expected because these programs are designed differently. Transitional housing is designed to serve clients for up to two years while helping them transition to permanent housing, whereas emergency shelters are designed to help people avoid unsheltered homelessness and, sometimes, to enter a longer-term program to help them overcome their housing crisis. “Heavy Users” of Emergency Shelters To help understand the characteristics of “heavy users” of the homeless services system, communities participating in the 2008 AHAR reported the number and characteristics of people who stayed in emergency shelters for six months or longer during the one-year period. These heavy users represent only 7 percent of all persons who used emergency shelters in 2008. As shown in Exhibit 3-11, the characteristics of these heavy users are substantially different from those of the overall population of shelter users during this period. Exhibit 3-11: Demographic Characteristics Associated with Staying in Emergency Shelters More than Six Months, 2008 Race All Persons in EmergencyShelters in 2008 Long-Term Stayers inEmergency Shelters in 2008 Hispanic/Latino Ethnicity 20.9% 28.7% Black or African American 42.3% 56.6% Children under Age 18 18.4% 26.4% Household with 5 or more People 7.1% 13.5% Number of People 1,312,917 81,016 Source: Homeless Management Information System data, 2008 The comparison indicates that minorities—specifically Hispanics and African Americans—and large families are disproportionately represented in the heavy-users group. Both Hispanics and African Americans are disproportionately represented in the overall homeless population, so it may be that the same factors that lead to greater risk for homelessness for these groups also lead to longer stays. White, non-Hispanic families also may go to emergency shelters in communities that have more resources for outplacements from emergency shelter into transitional or permanent housing relative to need.

Chapter 3: Sheltered Homeless People in 2008 39 3.4 Summary of All Sheltered Homeless People in 2008 In summary, the estimates of the sheltered homeless population in 2008 indicate that:  Nearly 1 in every 66 persons living in principal cities in the United States is homeless, compared to about 1 in every 450 persons living in suburban or rural areas.  African Americans are disproportionately represented in the homeless population relative to the overall U.S. population and the poverty population. They comprise 41.7 percent of the homeless population, 3.5 times their 12.4 percent share of the U.S. population and 1.8 times their 23.1 percent share of the poverty population.  Other demographic groups overrepresented in the homeless population relative to the overall U.S. population are adult males, people age 31 to 50, single-person households, and people with a disability.  Homeless sheltered individuals most often are male, members of a minority group, between the ages of 31 and 50, disabled, and experiencing homelessness alone. By contrast, family households in the shelter system are very likely to be headed by a minority woman without a male partner, under age 30, and in a household with 2 or 3 members.  More than two-thirds of all sheltered homeless people were located in principal cities, with 32 percent located in suburban or rural jurisdictions. Individuals are more likely to be in urban areas than persons in families. Seventy-one percent of individuals are accessing residential services in principal cities compared to 62 percent of persons in families.  The night before entering an emergency shelter or transitional housing facility, about two-fifths of the people came from another homeless situation (sheltered or unsheltered), two-fifths were moving from a housed situation (their own or someone else’s home), and the remaining one-fifth were split between institutional settings and a variety of other living situations.  Most people have relatively short lengths of stay in emergency shelters: three-fifths stay less than a month and one-third stay a week or less. Stays in transitional housing are longer: about 40 percent stayed 6 months or more in 2008. Nearly 1 in 5 people in transitional housing were there for the entire year for which HMIS data were analyzed.

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 41 Chapter 4 Trends in Sheltered Homelessness between 2007 and 2008 This chapter describes changes between 2007 and 2008 in the numbers and characteristics of people who were in an emergency shelter or transitional housing program at any time during a one-year period. The chapter is based on data from local Homeless Management Information Systems that were submitted by communities nationwide and statistically adjusted to represent the entire nation. The chapter breaks new ground by being the first AHAR to describe year-to-year changes in people who are sheltered homeless at some time during the year.24 The exact time periods covered by the HMIS data used in this chapter are October 1, 2006-September 30, 2007 and October 1, 2007-September 30, 2008. For simplicity, we refer to these periods as 2007 and 2008.25 The year-to-year comparisons suggest how patterns of homelessness may be changing over time.26 The chapter focuses on three types of changes:  Changes in the sheltered homeless population between 2007 and 2008, including changes in household type, geographic location, and demographic characteristics. 24 Chapter 2 of this report describes trends in people found to be either sheltered or unsheltered homeless on a particular night in January based on Point-in-Time counts conducted by communities and reported to HUD in CoC applications. In that case, we describe a three-year trend, 2006-2008, but with much less detail on characteristics of homeless people and their use of the homeless services system. 25 The second period ended just before the current economic downturn became severe and widespread, although the recession began in December 2007. According to the Department of Labor’s Bureau of Labor Statistics, the seasonally adjusted unemployment rate increased 4.8 percent to 5.5 percent between February and May 2008 and to 6.2 percent in September 2008. By December 2008 (after the study period for this report), it had increased to 7.2 percent. In December 2008 the National Bureau of Economic Research declared that the current recession began in December 2007, saying: “…a peak in economic activity occurred in the U.S. economy in December 2007. The peak marks the end of the expansion that began in November 2001 and the beginning of a recession.” See http://www.nber.org/cycles/dec2008.html and http://www.usatoday.com/money/economy/2008-12-01-recession-nber-statement_N.htm, accessed April 27, 2009. 26 The estimates are offered with an important caveat. As discussed earlier, the precision of the HMIS-based AHAR estimates has improved considerably compared to previous reports, but some communities still are unable to provide complete data. Thus, the HMIS-based estimates have wide confidence intervals (see Exhibit 4-1).

42 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008  Changes in the patterns of becoming homeless, based on the HMIS questions that ask where people were the night before they became homeless and how long they had been there.  Changes in how people use the homeless services system and, specifically, whether they use emergency shelter or transitional housing and how long they stay in residential programs for homeless persons during a 12-month period. 4.1 Changes in the Sheltered Homeless Population between 2007 and 2008 In 2008 about 1,594,000 persons used an emergency shelter, a transitional housing program, or both. This was a slight increase over the total number of sheltered homeless people measured for 2007, as shown in Exhibit 4-1. The total number of sheltered homeless persons increased by about 5,200 people, only three-tenths of a percent. However, the composition of the sheltered homeless population shifted appreciably. Exhibit 4-1: Changes in Total Sheltered Homeless Individuals and Persons in Families, 2007-2008 2007 2008 Household Type Total Number % of Sheltered Homeless Population Total Number % of Sheltered Homeless Population Change 2007- 2008 Total Number of Sheltered Persons a 1,588,595 c 100% 1,593,794 c 100% +5199 Individuals b 1,115,054 d 70.2% 1,092,612 d 68.6% -22,422 Persons in Families 473,541 d 29.8% 516,724 d 32.4% +43,183 Number of Sheltered Households with Children 130,968 — 159,142 — +28,174 a These estimated totals reflect the number of homeless persons in the 50 states and the District of Columbia who used emergency shelters or transitional housing programs during the one-year period of October 1 through September 30 of the following year. The estimates do not cover the U.S. Territories and Puerto Rico and do not include persons served by “victim service providers.” The estimated totals include an extrapolation adjustment to account for people who use emergency shelters and transitional housing programs but whose jurisdictions do not yet participate in their HMIS. People who are homeless but do not use an emergency shelter or transitional housing program during the 12-month period are not included. Percentages may not sum to 100 percent due to rounding. b This category includes unaccompanied adults, unaccompanied people under 18 years, and multi-adult households without children. c In 2007, the 95 percent confidence interval for the estimated number of sheltered homeless persons in the population was 1,043,775 to 2,133,415 persons (or +/- 544,820 persons). In 2008, the 95 percent confidence interval is 1,180,758 to 2,006,830 (or +/- 413,036 persons). d In both 2007 and 2008, approximately 1 percent of homeless persons were served both as an individual and as a person in a family. In this exhibit, such people appear in both categories in 2008, so the total number of sheltered persons is slightly less than the sum of individuals and families. The percentages use the sum of all individuals and persons in families as the denominator, rather than the unduplicated number of sheltered persons. Source: Homeless Management Information System data, 2007-2008

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 43 As noted in chapter 2, homelessness among individuals remained relatively unchanged, but the rise in family homelessness was considerable with an increase of about 43,000 persons in families, or 9 percent, from 2007. The share of people who are sheltered as family members increased from 29.8 percent to 32.4 percent (Exhibit 4.1). Described as households rather than as separate people, the share of family households among all sheltered households increased from 11.7 percent in 2007 to 14.4 percent in 2008.27 Changing Geography of Homelessness The types of locations in which people used residential homeless programs also shifted markedly between 2007 and 2008. Overall, sheltered homelessness is concentrated in urban areas. As noted in chapter 3, during 2008, 68 percent of sheltered homeless people were located in principal cities. However, between 2007 and 2008, the sheltered homeless population grew substantially in suburban and rural areas and fell in principal cities. As seen in Exhibit 4-2, the share of the sheltered homeless population in suburban and rural areas grew from 23 percent in 2007 to 32 percent in 2008, while the share in principal cities fell from 77 to 68 percent. Because many rural areas were unable to submit useable HMIS data to the AHAR, the data for 2007 and 2008 do not support separate estimates for suburbs and rural areas, although we know from the PIT estimates presented in chapter 2 that several predominantly rural states experienced sizable increases in their single-night counts of homeless people from 2007 to 2008. HUD is currently targeting HMIS technical assistance to rural areas, and the expectation is that future AHARs will be able to report separate estimates for suburban and rural areas. The higher share of homeless people in suburban and rural areas is related in part to the increase in sheltered family homelessness. The percentage of persons in families in suburban and rural areas increased considerably from 26.9 percent in 2007 to 38.3 percent in 2008, as shown in Exhibit 4-3. However, the share of sheltered homeless individuals also increased in suburban and rural areas between 2007 and 2008, by almost 8 percentage points. The number of sheltered individuals and family members in principal cities decreased. 27 As described in chapter 2, there were 1,092,612 homeless individuals, nearly all of whom were individual adult males, individual adult females, or unaccompanied youth. There were also 20,488 adults in multi- adult households. Assuming 2 adults per multi-adult household and each individual as a household, the percent of households that were families is 14.4 percent (or 159,142 divided by 1,102,856).

44 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 We investigated whether increased capacity among emergency shelters and transitional housing programs in suburban and rural areas could explain the higher numbers of sheltered homeless people in that type of location, but found that the capacity did not change much between 2007 and 2008. Instead, it appears that the existing capacity was more intensively used in suburban and rural areas in 2008 than 2007. (See chapter 5 for a detailed discussion of shelter capacity and utilization rates.) Changing Demographic Characteristics of Homeless Individuals and Families Across all sheltered homeless people, demographic characteristics changed little between 2007 and 2008, as shown in Exhibit 4-4. The largest changes are a 3.6 percentage-point decrease in single-person households and a 5.7 percentage-point increase in the share of adults with disabilities. The decrease in single person households results from the decrease in individual shelter users relative to persons in families. Or put differently, as the share of persons in families increases, the share of multi-person households must necessarily increase as well. Exhibit 4-2: Change in the Geographic Location of the Sheltered Homeless Population, 2007 and 2008 All Sheltered Homeless Persons in 2007 All Sheltered Homeless Persons in 2008Geographic Location Number Percent Number Percent Change from 2007 to 2008 in Percentage Points Principal Cities 1,221,044 76.9% 1,084,335 68.0% -4.9 Suburban or Rural Areas 367,551 23.1% 509,459 32.0% +8.9 Source: Homeless Management Information System data, 2007-2008 Exhibit 4-3: Change in the Geographic Location of the Sheltered Homeless Individuals And Families, 2007 and 2008 All Sheltered Homeless Persons in 2007 All Sheltered Homeless Persons in 2008 Change from 2007 to 2008 in Percentage Points Household Type Percent in Principal Cities Percent in Suburban or Rural Areas Percent in Principal Cities Percent in Suburban or Rural Areas Percent in Principal Cities Percent in Suburban or Rural Areas Individuals 78.7% 21.3% 71.0% 29.0% -7.7 7.7 Persons in Families 73.1% 26.9% 61.7% 38.3% -11.4 11.4 Source: Homeless Management Information System data, 2007-2008

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 45 Exhibit 4-4 Change in the Demographic Characteristics of Sheltered Homeless Persons, 2007-2008 Percentage of All Sheltered Homeless Population Characteristic 2007 2008 Percentage Point Change Race/Ethnicity White a 49.3% 49.5% +0.2 Black or African American 39.6% 41.7% +2.2 Other Single Race 3.9% 3.5% -0.4 Multiple Races 7.3% 5.4% -1.9 Hispanic/Latino Ethnicity 21.6% 19.5% -2.1 Male (adults) b 65.2% 64.0% -1.2 Age b Under age 18 21.6% 20.8% -0.8 18 to 30 20.5% 22.2% +1.7 31 to 50 41.2% 40.3% -0.8 51to 61 13.6% 14.0% +0.4 62 and older 2.9% 2.8% -0.2 Persons by Households Size c 1 person 70.3% 66.7% -3.6 2 people 8.0% 9.3% +1.3 3 people 8.2% 9.5% +1.3 4 people 6.5% 7.0% +0.5 5 or more people 6.9% 7.5% +0.6 Veteran (adults) d 13.2% 11.6% -1.6 Disabled (adults) d 37.1% 42.8% +5.7 a Approximately one-quarter of people identifying their race as white also identified their ethnicity as Hispanic/Latino. We do not have data on how many people of other races also identified themselves as Hispanic/Latino. b Age is calculated based on a person’s first time in shelter during the covered time period. A child is defined as a person age 17 or under, and an adult is defined as a person age 18 or older. c If a person is part of more than one household over the study period, the household size reflects the size of the first household in which the person presented during the covered time period. If household size changed during the program episode (i.e., a household member left the program early or joined later), household size for each person reflects household size on the day that person entered the program. d Veteran status and whether a person had a disabling condition are recorded only for adults in HMIS. The percentage calculations shown indicate the percent of homeless adults with this characteristic. A substantial number of records were missing information on disability status (32.4 percent in 2007 and 22.0 percent in 2008) and veteran status (15.9 percent in 2007 and 7.5 percent in 2008). The percentage calculations include only persons whose disability and veteran status was recorded. Source: Homeless Management Information System data, 2007- 2008

46 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 The increase in the share of persons with disabilities is unusually large for a single-year change and may reflect a pattern of increasing need particularly among individuals who become homeless. However, the estimated change may not reflect simply an actual change in the characteristics of the homeless population, but may also reflect the difficulty of collecting this information reliably. This variable has consistently had a high missing rate in HMIS data, although it has vastly improved. Disability status was missing for 32 percent of adults in 2007, but only for 22 percent in 2008. It may be that adults with missing information on disability status are more likely to be disabled than adults who had the information reported, and thus as missing information becomes known, the proportion of persons with a disability increases. On the whole, the lower missing rate in 2008 gives us a higher degree of confidence in the 2008 estimates, which suggests that approximately 4 out of every 10 homeless adults for whom we have information had a disability. Some other changes in the portrait of homelessness emerge when we look separately at homeless individuals and homeless persons in families and also distinguish between white people who describe their ethnicity as Hispanic or Latino and those who do not. For both household types, the percentages who are not minorities—that is white and not Hispanic— increased between 2007 and 2008, by 4 percentage points for individuals and 3.1 percentage points for families, as shown in Exhibit 4-5. White Hispanics dropped among the individual homeless population, but increased among the family population. The opposite pattern held for people describing themselves as black or African American, with an increase among individuals and a decrease among persons in families as a percentage of all sheltered homeless people. The total number of African American persons in families increased slightly, but this increase was outstripped by larger increases in numbers of white sheltered homeless families, both Hispanic and non-Hispanic. Exhibit 4-5 Change in Race and Ethnicity of Sheltered Homeless Individuals and Families, 2007 to 2008 a Sheltered Individuals Race % of Individuals2007 % of Individuals2008 Change in PercentagePoints White, non–Hispanic/Latino 42.6% 44.6% +4.0 White Hispanic, Latino 14.1% 11.0% -3.1 Black or African American 33.2% 37.0% +3.8 Other Racial Groups b 10.1% 7.5% -2.7 Sheltered Persons in Families Race % of Persons inFamilies 2007 % of Persons inFamilies 2008 Change in PercentagePoints White, non–Hispanic/Latino 21.3% 24.4% +3.1 White Hispanic, Latino 9.8% 13.1% +3.3 Black or African American 55.2% 50.9% -4.3 Other Racial Groups b 13.6% 11.6% -2.0 a Percentages may not sum to 100 percent due to rounding. b Includes persons who identify as multiple races. Source: Homeless Management Information System data, 2007- 2008

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 47 The increase in white, non-Hispanic people for both populations, families and individuals, may be related to the geographic shift towards suburban and rural areas. The trends among white Hispanics and blacks are more difficult to interpret. Race and ethnicity was another area in which reporting improved between 2007 and 2008. For example, the percentage of records missing information on race dropped from 11.6 in 2007 to 7.66 in 2008. Increasing family homelessness among whites, both Hispanic and non-Hispanic, may be related to the economic downturn. Exhibit 4-6 shows some slight changes in the household characteristics of homeless families between 2007 and 2008. Adults who become homeless together with children are usually— but not always—women. In 2008, 19 percent of adults in homeless families with children were men, about one percentage point more than in 2007. The proportion of family members who were adults also appeared to grow slightly between the two years, reflecting a slight decrease in the number of children rather than an increase in the number of multi-adult households. In 2007, the average number of adults per household was 1.37, while in 2008 the average was 1.28. Exhibit 4-6: Changes in the Household Characteristics of Sheltered Homeless Families, 2007-2008 a Characteristic Percentage of Sheltered Homeless Persons in Families 2007 Percentage of Sheltered Homeless Persons in Families 2008 Change in Percentage Points Adults and Children Adults 38.4% 39.7% +1.2 Children 61.6% 60.3% -1.3 Gender of adults Women 82.0% 80.9% -1.1 Men 18.0% 19.2% +1.1 a Percentages may not sum to 100 percent due to rounding. Source: Homeless Management Information System data, 2007-2008 4.2 Changing Patterns of Becoming Homeless, 2007-2008 The patterns for prior living arrangement are another area in which the HMIS data show some notable changes from 2007 to 2008, both for all sheltered homeless people and for individuals and families considered separately. Among all homeless people, the share who reported that they were already homeless at the time they entered a shelter or a transitional housing program dropped, while the share who reported that they came from some type of housing—their own or staying with family or friends—rose. In 2007, 42 percent reported that they were either on the street or in a different emergency shelter or transitional housing

48 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 facility the night before. In 2008, this number dropped to 37 percent. Also, the percentage that had been staying with family or friends increased from 26 percent in 2007 to 29 percent in 2008. People who lost their housing because they could no longer pay for it or because a rental unit was foreclosed may have first stayed with friends or family but then turned to the homeless services system after wearing out their welcome or tiring of the situation. These changes may be early signs of the impact of the economic downturn on homelessness. Exhibit 4-7 shows these patterns for individuals. When asked about their living arrangement just before they entered a shelter or a transitional housing program, about the same percentage of homeless individuals—slightly less than 15 percent—said that they were in a “place not meant for human habitation,” but somewhat smaller percentages in 2008 than in 2007 said that they had been either in emergency shelter or transitional housing. Accordingly, the percentage already homeless at the time they entered a residential program for homeless people dropped from 43.3 to 39.5 percent. Exhibit 4-7: Change in Previous Living Situation of Individuals Using Homeless Residential Services, 2007-2008 Living Arrangement the Night before Program Entry Percentage Distribution 2007 Percentage Distribution 2008 a Change in Percentage Points Total Already Homeless 43.3% 39.5% -3.8 Place not meant for human habitation 14.8% 14.7% -0.1 Emergency shelter 25.2% 22.0% -3.2 Transitional housing 3.2% 2.7% -0.5 Total from Some Type of Housing 36.5% 37.0% 0.5 Rented housing unitb 10.3% 9.2% -1.1 Owned housing unit 1.9% 2.0% 0.1 Staying with family 15.2% 14.2% -1.0 Staying with friends 9.1% 11.6% 2.5 Total from Institutional Settings 12.1% 13.6% 1.5 Psychiatric facility, substance abuse center, or hospital 6.6% 7.6% 1.0 Jail, prison, or juvenile detention 5.0% 5.6% 0.6 Foster care home 0.5% 0.4% -0.1 Total from Other Situations 8.2% 9.9% 1.7 Hotel, Motel (no voucher) or “other” 8.2% 9.9% 1.7 Number of Homeless Adults 1,115,054 1,092,612 -- a The percentage of HMIS records missing this information dropped from 32 percent in 2007 to 21 percent in 2008. b Includes a small percentage in permanent supportive housing. Source: Homeless Management Information System data, 2007-2008

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 49 About the same percentages—roughly 37 percent—said they had been in a housing unit (their own or someone else’s) before entering a shelter. However, as shown in Exhibit 4-7, the number of individuals staying with friends before entering a shelter increased by 2.5 percentage points. An increasing pattern of people coming to shelter after staying temporarily with friends may indicate that more individuals are finding themselves unstably housed and becoming homeless after exhausting short-term alternatives. Also, an indication that the economic downturn may have started to affect patterns of homelessness among individuals is the stability of the previous night’s living arrangement. A larger percentage of individuals entering residential programs for homeless people in 2008 compared to 2007 had been in the place they spent the previous night for more than a year: 27 percent in 2008 compared with 24 percent in 2007. Thus, in addition to fewer people coming from situations in which they already were homeless, more came from situations that previously had been relatively stable. Somewhat higher percentages of individual sheltered homeless people in 2008 than in 2007 said that they had been in institutional settings such as jails or residential treatment facilities or in “other” living arrangements. This pattern also may suggest that residential programs for homeless individuals on average are serving an increasingly needy population. Exhibit 4-8 shows changes between 2007 and 2008 in the living situations of homeless people in families prior to entering emergency shelters or transitional housing. The patterns shown in these data reveal more clearly the effect of homeless families of the worsening economic situation. Previous research has shown that family homelessness is more sensitive than individual homelessness to business cycles,28 which also may help explain why family homelessness increased in 2008 although individual homelessness did not. As shown in Exhibit 4-8, a smaller share of families were already homeless, either in a “place not meant for human habitation” or in a different shelter or transitional housing program: 25.9 percent in 2008, compared with 30.3 percent in 2007. The share of families coming from a “housed” situation rose to 61.5 percent, a 7.1 percentage-point increase between 2007 and 2008. While the percentage coming from a housing unit the family owned dropped somewhat and remained small, a much larger share came from a rented housing unit. This may reflect the initial effects of the foreclosure crisis on renters. In addition, larger shares than in 2007 said that they had been staying with family or with friends before becoming sheltered homeless. As was the case for individuals, an increasing percentage of adults in families—in this case a 5 percentage point increase from 18.1 percent to 23.1 percent, said that they had been in the place they stayed the previous night a year or longer. 28 Culhane, Dennis P, Stephen R. Poulin, Lorlene M. Hoyt, and Stephen Metraux. 2003. The Impact of Welfare Reform on Public Shelter Utilization in Philadelphia: A Time-Series Analysis. Cityscape (6)2: 173-185.

50 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 4.3 Changing Use of the Residential System for Homeless People, 2007-2008 Despite more frequently entering shelters or transitional housing from “housed” situations, people did not leave homeless residential programs more rapidly in 2008 compared to 2007. On the contrary, they had longer “stays” or total lengths of time spent in homeless programs during the 12-month period. As Exhibit 4-9 shows, the median length of stay increased by 4 nights for individuals in emergency shelter, by 16 nights for individuals in transitional housing, and by 10 nights for families in transitional housing. Exhibit 4-8: Change in Previous Living Situation of Adults in Families Using Homeless Residential Services, 2007-2008 Living Arrangement the Night before Program Entry Percentage of Adults in Families 2007 Percentage of Adults in Families 2008 Change in Percentage Points Total Already Homeless 30.3% 25.9% -4.4 Place not meant for human habitation 3.6% 4.0% 0.4 Emergency shelter 23.3% 19.8% -3.5 Transitional housing 3.4% 2.2% -1.2 Total from Some Type of Housing 54.4% 61.5% 7.1 Rented housing unit a 13.0% 16.8% 3.8 Owned housing unit 3.8% 2.4% -1.4 Staying with family 24.2% 27.8% 3.6 Staying with friends 13.4% 14.5% 1.1 Total from Institutional Settings 2.3% 2.4% 0.1 Psychiatric facility, substance abuse center, or hospital 1.9% 1.8% -0.1 Jail, prison, or juvenile detention 0.4% 0.5% 0.1 Foster care home 0.0% 0.1% 0.1 Total from Other Situations 13.0% 10.0% -3.0 Hotel, motel (no voucher) or “other” 13.0% 10.0% -3.0 Total Homeless Adults in Families 179,401 203,199 -- a Includes a small percentage in permanent supportive housing. Source: Homeless Management Information System data, 2007-2008

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 51 Changes in Lengths of Stay in Emergency Shelter, 2007-2008 Exhibit 4-10 shows the pattern of lengths of stay for individuals in emergency shelter in more detail. Fewer individuals were in shelter a week or less in 2008 than in 2007 (37 versus 42 percent), and more had stays between one and six months. The inset in Exhibit 4-10 provides additional details on individuals who stayed in shelter for 6 months or more. The inset shows that, within this group of individuals, a larger fraction (although still just slightly more than 1 percent) stayed in emergency shelter for the entire year for which AHAR data were collected.29 Longer stays for individuals in emergency shelter in 2008—in particular the decrease in those staying a week or less compared with 2007—could reflect the same phenomenon suggested by the increase in those coming out of jail, prison, or inpatient treatment facilities. It appears that fewer individuals entering emergency shelters are experiencing a very short and easily resolved housing crisis, and more need a few weeks to find an alternative arrangement. 29 Length of stay in a homeless residential facility is limited to the 12-month reporting period (October 1, 2007 through September 30, 2008). The length of stay among persons who entered a facility before the start of the reporting period or who did not leave by the end of the reporting period was restricted to the time spent in the facility during the 12-month period. Thus, the maximum length of stay is 366 nights (2008 was a leap year). Exhibit 4-9: Change in Median Length of Stay, by Shelter and Household Type, 2007-2008 Median Nights in Shelter Household Type All Sheltered Homeless Persons in 2007 All Sheltered Homeless Person in 2008 Change in Median Nights in Shelter from 2007 to 2008 Emergency Shelters Individuals 14 nights 18 nights + 4 nights Persons in Families 30 nights 30 nights No change Transitional Housing Individuals 91 nights 107 nights + 16 nights Persons in Families 151 nights 161 nights + 10 nights Source: Homeless Management Information System data, 2007-2008

52 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 Exhibit 4-11: Individuals Who Stayed in Emergency Shelter More Than 180 Days, 2007 and 2008 Characteristics Percentage of Long-Stayers 2007 Percentage of Long-Stayers 2008 Change in Percentage Points Gender Male 73.5% 77.0% 3.5 Female 26.5% 23.0% -3.5 Race/Ethnicity White, non–Hispanic/Latino 31.9% 34.8% 2.9 White, Hispanic/Latino 11.0% 12.8% 1.8 Black or African American 49.9% 45.4% -4.5 Other racial groups 7.3% 7.2% -0.1 Age a 18 to 30 12.6% 16.7% 4.1 31 to 50 50.3% 51.9% 1.6 51 and older 34.9% 30.6% -4.3 Veteran (adults only)b -- 15.4% -- Disabled (adults only)b -- 39.7% -- a Age categories do not sum to 100 percent because of the small numbers of people homeless alone who were under 18 years of age. b Because of the very different rates of missing data between 2007 and 2008 for veteran and disability status, the comparison to 2007 is not shown for these characteristics. Source: Homeless Management Information System data, 2007- 2008 0.0% 5.0% 10.0% 15.0% 20.0% 25.0% 30.0% 35.0% 40.0% 45.0% 1 week or less 1 week to 1 month 1-3 months 3-6 months 6-9 months 9 months to 1 year Length of Stay Category Pe rc en tag eo fI nd ivi du als 2008 2007 0.0% 0.2% 0.4% 0.6% 0.8% 1.0% 1.2% 6to 7m onth s 7to 8m onth s 8to 9m onth s 9to 10 mo nth s 10 to 11 mo nth s 11 mon ths to 1y ear 1y ear Exhibit 4-10: Lengths of Stay in Emergency Shelter for Individuals in 2008 Compared with 2007 Source: Homeless Management Information System data, 2007-2008 Pe rc en tag eo fIn div idu als Pe rc en tag eo fIn div idu als

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 53 Exhibit 4-11 focuses on those individuals who stayed in emergency shelter for six months or more, a group that makes up only 5 percent of all individuals using emergency shelters. The comparisons of demographic characteristics between 2007 and 2008 show that these heavy users of emergency shelters, while still predominately African American, are becoming somewhat more white and Hispanic. Heavy users of emergency shelter as individuals also were somewhat younger in 2008 than they were in 2007, although the percentage older than 50 (30.6 percent) remained substantially greater than the percentage of all individuals in emergency shelters who were in that age group (24.5 percent). The 30-day median length of stay for families in emergency shelter was the same in 2008 as in 2007, but the pattern changed somewhat, as illustrated in Exhibit 4-12. As the exhibit shows, the percentage of families with stays between a week and a month dropped somewhat, while the proportion staying between one and three months increased, now becoming the most common length of stay category. As was the case in 2007, a substantial number of families (23.5 percent in 2008) were able to resolve their housing crisis within a week. But among those unable to do so, a larger percentage in 2008 stayed in shelter for at 4-12: Lengths of Stay in Emergency Shelter for Families in 2008 Compared with 2007-2008 0% 5% 10% 15% 20% 25% 30% 1 w eek or less 1 w eek to 1 month 1-3 months 3-6 months 6-9 months 9 months to <1 year Full Year Length of Stay Category To tal Fa m ili es 2008 2007 Source: Homeless Management Information System data, 2007-2008

54 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 least a month. Families experiencing unusually long stays in emergency housing were particularly likely to be African American in 2008, 70.6 percent, compared with 50.9 percent of all sheltered homeless families. However, this percentage dropped by a startling 17.3 percentage points, from 87.9 percent in 2007 (see Exhibit 4-13). The proportional reduction is the result of both a raw decline in the numbers of African American families who stayed more than six months in emergency shelters (despite an increase in the overall number of African American families) and rising numbers of long-term stayers among Hispanics. The number of white, non-Hispanic families staying more than six months remained steady across the two years, despite rising overall numbers. This may also reflect a rise in families entering emergency shelter in the latter half of the year as the economic crisis deepened, and this may have prevented them from reaching the six-month stay mark within the study period. This apparent change between 2007 and 2008 in the racial and ethnic profile of families staying in emergency shelter for more than six months is difficult to interpret. It should be kept in mind that such heavy users of emergency shelters made up only 9.8 percent of all homeless persons in families who used emergency shelter in 2008 (see Exhibit 4-11 above). The shifting geography of family homelessness, with growth in the numbers and percentages of persons in families found in suburban and rural areas, may help explain both the decline in the percentage of all sheltered homeless family members who are African American (from 55.2 to 50.9 percent) and an even steeper decline in the percentage of families with long stays in emergency shelter who are African American. Exhibit 4-13: Change in Persons in Families Who Stayed in Emergency Shelters More Than 180 Days, 2007-2008 Characteristic Percentage of Long-Stayers 2007 Percentage of Long-Stayers 2008 Change in Percentage Points White, non–Hispanic/Latino 6.8% 8.0% +1.2 White, Hispanic/Latino 2.6% 9.5% +6.9 Black or African American 87.9% 70.6% -17.3 Other single- and multi-race groups 2.7% 12.0% +9.3 Source: Homeless Management Information System data, 2007-2008 Changes in Lengths of Stay in Transitional Housing, 2007-2008 Lengths of stay in transitional housing are much longer than lengths of stay in emergency shelter. Homeless persons are expected to remain in transitional housing long enough to complete a program that helps overcome barriers to obtaining and maintaining permanent housing. For transitional housing used by individuals, lengths of stay grew between 2007

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 55 and 2008, as shown separately for men and women in Exhibit 4-14. For men, the median length of stay in transitional housing grew from 89 days in 2007 to 101 days in 2008. For women, the median grew from 95 days in 2007 to 120 days in 2008. Women were more likely than men to be in transitional housing for at least the entire year (21 percent of women versus 14 percent of men), and these percentages also had increased from 2007, when only 12 percent of women and 9 percent of men stayed a year or more in transitional housing. Longer stays in transitional housing among individuals could reflect the selection—or self referral—into transitional housing of a higher percentage of individuals who need more time to become ready for a permanent housing placement or who are more willing to cooperate with the requirements of the transitional housing program. Longer stays in transitional housing also could reflect the greater difficulty that individuals and programs have with finding subsidized supportive or affordable mainstream housing for an outplacement from the transitional program. Families were somewhat more likely in 2008 than in 2007 to use transitional housing. The percentage of family members using transitional housing, either alone or together with emergency shelter, increased from 30.5 to 31.3 percent. The median length of stay for families in transitional housing grew from 151 days to 160 days between 2007 and 2008. Exhibit 4-15 provides more detail on lengths of stay in transitional housing. Most striking is the increase in families staying in transitional housing at least a full year, now more than a fifth of all families using transitional housing. This could reflect greater success of transitional housing programs in retaining families through a period needed to complete the Exhibit 4-14: Lengths of Stay in Transitional Housing for Individual Sheltered Men and Women, 2007 and 2008 Percentage of Individuals in Transitional Housing 2007 Percentage of Individuals in Transitional Housing 2008Length of Stay Male Female Male Female A week or less 7.7% 8.8% 6.0% 6.5% One week to one month 15.8% 15.2% 14.7% 13.7% One to 3 months 26.9% 24.7% 26.3% 23.1% 3 to 6 months 22.2% 20.5% 20.7% 17.6% 6 to 9 months 11.0% 11.6% 11.7% 10.2% More than 9 months but less than a year 7.3% 7.6% 7.1% 8.1% A year or morea 8.9 % 11.6% 13.6% 20.8% Median shelter nights 89 days 95 days 107 days 120 days Total number of persons 127,515 72,907 130,306 76,066 a Some individuals had lengths of stay longer than a year because they were in a program at the start of the data collection period or remained in the program after the end of the data collection period. Source: Homeless Management Information System data, 2007-2008

56 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 program, or it could reflect greater difficulty in finding appropriately-sized, subsidized or unsubsidized permanent housing for families. The economic downturn may make it more difficult for both persons in families and individuals to leave homelessness, if they cannot obtain employment that will enable them to sustain their own housing, and this may help account for longer lengths of stay in transitional housing. 4.4 Summary of Trends in Sheltered Homelessness between 2007 and 2008 Comparisons of the sheltered homeless population data between 2007 and 2008 indicate that:  The composition of the sheltered homeless population shifted somewhat. While the overwhelming majority of people in emergency shelter or transitional housing at some time during a one-year period were individuals, the share of persons who were sheltered as family members increased from 28.9 percent to 32.1 percent. 4-15: Lengths of Stay in Transitional Housing by Families in 2008 Compared with 2007 0% 5% 10% 15% 20% 25% 1 week or less 1 week to 1 month 1-3 months 3-6 months 6-9 months 9 months to <1 year Full Year Length of Stay Category To tal Fa m ili es 2008 2007 Source: Homeless Management Information System data, 2007-2008

Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 57  The number of both individuals and family members in emergency shelter or transitional housing in principal cities dropped somewhat, and the numbers of both sheltered homeless populations increased substantially in suburban and rural areas.  Between 2007 and 2008, the share of the sheltered homeless population in suburban and rural areas increased from 23 percent to 32 percent. The increase does not reflect increased capacity of residential programs in suburban and rural areas, but instead more intensive use of that capacity.  There were early signs of the potential impact of the economic crisis on homelessness. Between 2007 and 2008, there was an increase in the share of people living with family or friends the night before staying at a homeless residential program, a decrease in the share who reported they were already homeless, and an increase in the percentage who reported they had been in the place they stayed the night before for a year or more. These trends probably reflect the effect of the economic downturn that began in December 2007 and intensified toward the end of the period defined as 2008 (October 2007-September 2008).  People are using homeless residential shelters for a longer amount of time. The share using emergency shelters or transitional housing for more than a month during the one-year period increased from 44.3 percent in 2007 to 48.2 percent in 2008. A somewhat higher percentage used transitional housing, which accounts in part for the longer stays overall. At the same time, the median length of stay in transitional housing also increased from 2007 to 2008 by 16 nights for individuals and 10 nights for persons in families. The changing patterns of homelessness between 2007 and 2008 suggest that family homelessness may be sensitive to ups and downs in the national economy. In response to the economic crisis, homelessness grew among families, grew in suburban and rural areas, and became relatively more white and non-Hispanic. Many families were able to resolve their housing crisis quickly, spending short times in emergency shelter. But those who were not able to leave sheltered homelessness quickly had relatively longer stays in emergency shelter or transitional housing and were more likely to use transitional housing. In contrast, the changes between 2007 and 2008 suggest that individual sheltered homelessness may be characterized increasingly by people with relatively high needs, as the number of individuals in emergency shelter or transitional housing remained stable despite the economic crisis. Indications of an individual homeless population with relatively higher needs are the increase in the share of individual homeless people who were in institutional settings the night before they became homeless, the increase in the share of sheltered homeless adults who report that they have a disability, and a drop in the percentage of individual homeless people with very short stays in emergency shelter. It may also suggest that communities have achieved some success in preventing homelessness among individuals with less severe needs.

The 2008 Annual Homeless Assessment Report

58 Chapter 4: Trends in Sheltered Homelessness between 2007 and 2008 While the 2008 data collection period (October 2007-September 2008) was still fairly early in the economic downturn, the effects of the recession were becoming evident, especially for families, among whom a substantial percentage in 2008 compared with 2007 came from a “housed” situation before entering sheltered homelessness. While the small share of families coming from a housing unit they owned did not increase, the share coming from a unit they rented increased, as did the shares reporting that they had been staying with relatives or friends.

Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 59 Chapter 5 The Nationwide Capacity of Residential Programs for Homeless People This chapter describes the nation’s capacity to provide shelter or permanent supportive housing for homeless and formerly homeless people. The inventory of beds is reported for four types of residential programs: emergency shelters, transitional housing, permanent supportive housing, and safe havens.30 The chapter presents information on:  The 2008 inventory of beds by residential program type. The chapter also presents the total number of beds dedicated to serving individuals and persons in families, as well as specific homeless subpopulations—e.g., unaccompanied youth, veterans, and victims of domestic violence.  The geographic location of beds in 2008, focusing on the total number of beds by state and the proportion of beds located in urban and suburban/rural areas.  The frequency of bed use (or the bed utilization rate) for emergency shelters and transitional housing programs. Bed utilization rates are also reported by geographic location.  Changes in the nation’s capacity to provide shelter or housing for homeless and formerly homeless persons from 2006 to 2008. With one exception, all of the information presented in this chapter was reported by CoCs in a bed inventory that is part of their annual applications for funding. The exception is that the bed utilization and turnover rates use one-year estimates of shelter users as well as bed inventory information, and thus are based on both HMIS data and CoC application data. 5.1 Inventory of Residential Programs and Beds, 2008 Total Number of Residential Programs and Beds The 2008 national inventory of residential programs and year-round beds31 serving homeless and formerly homeless persons included an estimated 19,563 residential programs and an estimated 30 HUD required CoCs to report safe haven programs separately in Exhibit 1 of the CoC application for the first time in 2008. See box below—“Types of Residential Programs”—for a definition of a safe haven. 31 Year-round beds are available for use throughout the year and are considered part of the stable inventory of beds for homeless persons.

60 Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 614,042 beds (see Exhibit 5-1).32 The number of programs is divided almost evenly among emergency shelters, transitional housing, and permanent supportive housing, with about a third of beds located in each program type. 32 The 2008 inventory includes beds that were reported by CoCs as part of their current and new inventories. The current inventory was available for occupancy on or before January 31, 2007. The new inventory was available for occupancy between February 1, 2007 and January 30, 2008. Types of Residential Programs 1. Emergency Shelter: A facility whose primary purpose is to provide temporary shelter for people who otherwise would be forced to stay in a place not fit for human habitation. 2. Transitional Housing: A residential program intended to facilitate the movement of homeless individuals and families into permanent housing. Homeless persons may live in transitional housing for up to 24 months and receive services that prepare them to obtain and retain permanent housing. 3. Permanent Supportive Housing (PSH): Long-term, subsidized housing with supportive services for formerly homeless persons with disabilities to enable them to live as independently as possible in a permanent setting. 4. Safe Havens: A form of supportive housing that serves hard-to-reach homeless persons with severe mental illnesses who are on the streets and have been unable or unwilling to participate in supportive services. Types of Beds Reported in a CoC Housing Inventory 1. Year-round beds: Beds available for use throughout the year and considered part of the stable inventory of beds for homeless persons. 2. Seasonal beds: Beds usually available during particularly high-demand seasons (e.g., winter months in northern regions or summer months in southern regions), but not available throughout the year. 3. Overflow beds: Beds typically used during emergencies (e.g., a sudden drop in temperature or a natural disaster that displaces residents). Their availability is sporadic. 4. Voucher beds: Beds made available, usually in a hotel or motel. They often function as overflow beds. Some communities, especially rural communities, use vouchers instead of fixed shelters, and thus these beds also can also be year-round beds. 5. Family units: Housing units (e.g., apartments) that serve homeless families. Each family unit includes several beds.

Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 61 Exhibit 5-1: National Inventory of Residential Programs and Year-Round Beds, 2008a Programs BedsProgram Type Number Percentage Number Percentage Emergency Shelter 6,076 31.1% 211,222 34.4% Transitional Housing 7,215 36.9% 205,062 33.4% Permanent Supportive Housing 6,146 31.4% 195,724 31.9% Safe Haven b 126 0.6% 2,034 0.3% Total Number 19,563 100% 614,042 100% a Year-round beds are available for use throughout the year and are considered part of the stable inventory of beds for homeless persons. The bed inventory includes beds in Puerto Rico, the U.S. Territories of Guam and the Virgin Islands. b The 2008 CoC application asked CoCs to report information on safe havens separately for the first time. Source: 2008 Continuum of Care Application: Exhibit 1, CoC Housing Inventory The national bed inventory also includes safe haven programs. In 2008, CoCs were required to report safe haven programs separately on the CoC application for the first time. (In previous years, safe haven programs were reported as either emergency shelters or transitional housing.) Emergency Shelter and Transitional Housing In 2008, the national inventory of year-round beds for homeless persons was split almost evenly between emergency shelter and transitional housing programs. Emergency shelters dedicated slightly more than half of their beds to homeless individuals, while transitional housing programs dedicated slightly more than half of their beds to homeless families (see Exhibit 5-2). Family beds are located within units—such as apartments or single rooms that are occupied by one family—and programs that served families had 65,587 family units with an average 3.2 beds per unit. Transitional housing programs provided more than half of all family units nationwide (54 percent), and the remaining units were provided through emergency shelters. In addition to their year-round beds, CoCs must report their inventory of seasonal and overflow or voucher beds in emergency shelters. These beds are typically used during inclement weather conditions or when demand for shelter services exceeds the year-round bed capacity. The 2008 national bed inventory included 20,413 seasonal beds and 37,141 overflow or voucher beds. If these beds are added to the total number of year-round shelter beds in emergency shelters and transitional housing programs, the nation’s peak bed capacity for homeless persons in 2008 was 473,838 beds. Permanent Supportive Housing For several years, one of HUD’s policy priorities has been the development of permanent supportive housing programs that provide a combination of housing and supportive services to formerly homeless people with disabilities. In 2008, the nation’s permanent supportive

62 Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People housing inventory included nearly 196,000 beds (see Exhibit 5-3). About 61 percent of these beds (119,143) served unaccompanied individuals, with the remaining 39 percent serving families (76,581). The inventory of permanent supportive housing beds for families was distributed across approximately 27,000 family units, with an average of 2.9 beds per unit. Exhibit 5-2: Number of Emergency and Transitional Beds and Units in Homeless Assistance System Nationwide, 2008 Year-Round Beds Other Beds Total Year- Round Beds Family Beds Individual Beds Total Yr- Round Family Units Seasonal Overflowor Voucher Emergency Shelters Current inventory 211,222 98,703 112,519 30,117 20,413 37,141 Transitional Housing Current inventory 205,062 110,973 94,089 35,470 N/A N/A Total Current inventory 416,284 209,676 206,608 65,587 20,413 37,141 Source: 2008 Continuum of Care Application: Exhibit 1, CoC Housing Inventory Exhibit 5-3: Number of Permanent Supportive Housing Beds in Homeless Assistance System Nationwide, 2008 Year-Round Beds Total Year- Round Beds Family Beds Individual Beds Total Yr-Round Family Units Permanent Supportive Housing Programs Current inventory 195,724 76,581 119,143 26,729 Source: 2008 Continuum of Care Application: Exhibit 1, CoC Housing Inventory Safe Havens HUD funds safe haven programs designed to serve people with severe mental illness. Safe haven programs resemble permanent housing in that homeless persons may reside in these 24-hour residences for an unspecified duration in private or semi-private accommodations. Occupancy is limited to no more than 25 persons. The nation’s inventory of safe haven programs included 2,034 beds in 2008, less than one percent of the total bed inventory. All safe haven beds served homeless individuals. As CoCs continue to report on safe haven programs in their CoC applications, future AHAR reports will track changes in the safe haven bed inventory over time.

Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 63 Source: 2008 Continuum of Care Application: Exhibit 1, CoC Housing Inventory Exhibit 5-4: Year-Round Emergency Shelter and Transitional Housing Beds by Homeless Subpopulation, 2008 12.8% 2.8% 1.5% 1.9% 80.9% Domestic violence victims only Veterans only Persons with HIV/AIDS Unaccompanied youth General population Inventory of Beds for Homeless Subpopulations Emergency shelter and transitional housing programs reserve a portion of their beds for a variety of homeless subpopulations with special characteristics and needs. In 2008, about 81 percent of beds were available to the general homeless population, with the remainder of beds reserved for specific subpopulations: approximately 13 percent for victims of domestic violence; 3 percent for veterans; 2 percent for unaccompanied youth; and 2 percent for persons living with HIV/AIDS (see Exhibit 5-4).33 While both emergency shelters and transitional housing programs target about one-fifth of their beds for specific populations, the target population varies slightly by program type. A larger proportion of beds were available for victims of domestic violence in emergency shelters (16 percent) than in transitional housing (9 percent). Transitional housing programs reserved more beds for veterans (5 percent) and for persons living with HIV/AIDS (2 percent), compared to emergency shelters (0.8 percent for both population types). The share of beds for unaccompanied youth was the same for both emergency shelters and transitional housing programs (2 percent). 5.2 Geographic Location of Beds, 2008 Distribution of Beds by State Exhibit 5-5 shows the total number of beds by state. The exhibit also provides a beds per capita rate that is equal to the number of beds per 1,000 people in the state. Nationwide, there were 2 beds for homeless and formerly homeless persons per 1,000 people in the United States. 33 The CoC application reports beds dedicated to unaccompanied youth separately from beds dedicated to victims of domestic violence, veterans, or persons living with HIV/AIDS. The exhibit assumes that beds dedicated to unaccompanied youth are mutually exclusive from beds dedicated to these other subpopulations.

64 Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People The median number of beds per capita was 1.8. The District of Columbia has 8,858 beds, and its per capita rate surpassed all states, with 15 beds per 1,000 people. The State of New York had the largest inventory of beds in the country (88,998 beds) and the second highest per capita rate (4.6). California also had a very large bed inventory (79,119 beds), and its per capita rate was slightly above the national average (2.2). Among the five most populous states in the United States— California, Texas, New York, Florida, and Illinois—Texas had the lowest number of beds in Exhibit 5-5: National Inventory of Year-Round Beds and Beds Per Capita Rate by State, 20081 Rank State # of Beds Beds Per Capita Rate Rank State # of Beds Beds Per Capita Rate 1 District of Columbia 8,858 15.0 New Hampshire 2,350 1.8 2 New York 88,998 4.6 Ohio 20,240 1.8 3 Oregon 14,215 3.8 29 Delaware 1,509 1.7 4 Maine 4,718 3.6 Iowa 5,102 1.7 Hawaii 4,600 3.6 Indiana 10,817 1.7 6 Washington 23,123 3.5 Florida 31,026 1.7 7 Massachusetts 22,339 3.4 Missouri 9,955 1.7 8 Alaska 2,163 3.2 34 Louisiana 7,137 1.6 9 Nevada 7,162 2.8 35 Wisconsin 8,255 1.5 10 Minnesota 13,135 2.5 Wyoming 777 1.5 11 Vermont 1,495 2.4 Montana 1,407 1.5 12 Rhode Island 2,449 2.3 38 Alabama 6,752 1.4 13 Connecticut 7,563 2.2 Georgia 13,936 1.4 California 79,119 2.2 Idaho 2,188 1.4 15 Arizona 13,321 2.0 Tennessee 8,885 1.4 Pennsylvania 25,481 2.0 West Virginia 2,586 1.4 South Dakota 1,636 2.0 43 North Carolina 11,998 1.3 18 Nebraska 3,463 1.9 44 Virginia 9,542 1.2 North Dakota 1,199 1.9 Arkansas 3,359 1.2 Kentucky 7,950 1.9 46 Kansas 3,192 1.1 New Mexico 3,685 1.9 South Carolina 4,958 1.1 Michigan 18,561 1.9 Oklahoma 4,002 1.1 23 Illinois 23,642 1.8 Texas 26,473 1.1 Maryland 10,212 1.8 New Jersey 9,280 1.1 Utah 4,931 1.8 51 Mississippi 2,044 0.7 Colorado 8,849 1.8 Total 610,637 2.0 1 The beds per capita rate indicates the number of residential beds per 1,000 people in the state. Puerto Rico and U.S. Territories are not included: Guam (303 beds and 2.0 beds per capita), Virgin Islands (157 beds and 1.4 beds per capita), and Puerto Rico (2,945 beds and 0.7 beds per capita). Sources: 2008 Continuum of Care Application: Exhibit 1, CoC Housing Inventory; 2007 American Community Survey

Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 65 proportion to its population. Nonetheless, all populous states tended to have a large share of the total national bed inventory (see Exhibit 5-6). Distribution of Beds by Urban and Suburban/Rural Areas According to information submitted by CoCs in 2008, more than half of all programs and almost two-thirds of all beds are located in a principal city (see Exhibit 5-7). The distribution of programs and beds varies by program type. Transitional housing and permanent supportive housing programs follow a similar distribution as the nationwide inventory. But a large majority of safe haven programs and beds —about three-quarters—are located in principal cities. While about two-thirds of emergency shelter beds are located in principal cities, less than half of the programs are located in these areas. The seemingly inconsistent distribution of emergency shelter programs and beds is driven by the fact that emergency shelter programs tend to be larger in principal cities than in suburban and rural areas. The average size of an emergency shelter in principal cities was 52 beds, compared to 20 beds in suburban and rural areas. Exhibit 5-6 Percentage of the Nation’s Bed Inventory by State, 2008 Source: 2008 Continuum of Care Application: Exhibit 1, CoC Housing Inventory

66 Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People Exhibit 5-7: Distribution of Bed Inventory by Geographic Area, 2008 Total Number Percentage of Total Type of Program Principal City Suburbanand Rural Areas Principal City Suburban andRural Areas Emergency Shelter Number of programs 2,817 3,259 46.4% 53.6% Number of year-round beds 147,186 64,036 69.7% 30.3% Transitional Housing Number of programs 3,991 3,224 55.3% 44.7% Number of year-round beds 126,826 78,236 61.9% 38.2% Permanent Supportive Housing Number of programs 3,587 2,559 58.4% 41.6% Number of year-round beds 131,869 63,855 67.4% 32.65 Safe Haven Number of programs 93 33 73.8% 26.25 Number of year-round beds 1,536 498 75.5% 24.5% Total Number of programs 10,488 9,075 53.6% 46.4% Number of year-round beds 407,417 206,625 66.4% 33.6% Source: 2008 Continuum of Care Application: Exhibit 1, CoC Housing Inventory 5.3 Bed Utilization and Turnover Rates, 2008 This section describes the average daily bed utilization and bed turnover rates by residential program type and geographic area. The bed utilization and turnover rates use one-year estimates of shelter users based on HMIS data as well as bed inventory information reported by CoCs in their annual applications. The HMIS data account for the total number of persons who used an emergency shelter or transitional housing facility at any point from October 1, 2007 through September 30, 2008. Emergency Shelters Between October 2007 and September 2008, over 90 percent of emergency shelter beds were occupied on an average day (see Exhibit 5-8). Emergency shelter beds dedicated to individuals were near full capacity—around 94 percent occupied on an average day— whereas 86 percent of beds for persons in families were occupied on average. Emergency shelters also had high bed turnover rates, especially among homeless individuals. Seven homeless persons were served per bed each year, with a slightly higher turnover rate among individual beds and a lower rate among family beds.

Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 67 Emergency shelters located in principal cities had particularly high utilization rates but slightly lower bed turnover rates when compared to similar programs located in suburban/rural areas. About 93 percent of beds in principal cities were occupied on an average day compared to 86 percent of beds in suburban and rural areas. Beds dedicated to individuals in both principal cities and suburban/rural areas had higher utilization and turnover rates than those dedicated to persons in families. Exhibit 5-8: Average Daily Utilization and Turnover Rate of All Year-Round Equivalent Beds by Program and Household Type and by Geographic Area, 2008 a Emergency Shelters Transitional HousingRate a Total Individual Family Total Individual Family Overall Utilization rate 91.0% 94.3% 86.1% 82.7% 87.1% 78.4% Turnover rate 6.9 8.3 5.0 1.8 2.1 1.6 Principal City Utilization rate 93.1% 95.2% 89.7% 81.8% 84.8% 78.2% Turnover rate 6.7 8.2 4.6 1.9 2.0 1.7 Suburban and Rural Areas Utilization rate 85.8% 91.9% 78.3% 83.9% 91.4% 78.6% Turnover rate 7.3 8.7 5.7 1.8 2.3 1.5 a The rates reported in the exhibit are based on year-round equivalent beds. A year-round equivalent bed is equal to the total number of year-round beds plus the total number of seasonal beds in proportion to the amount of time these beds were available during the one-year reporting period. b The exhibit provides two types of bed utilization rates—average daily bed utilization rates and bed turnover rates. The average daily bed utilization rate is calculated by dividing the average daily census during the study period by the total number of year-round beds in the current inventory and then converting it to a percentage. The turnover rate measures the number of persons served per available bed over the 12-month period. It is calculated by dividing the number of persons served by the number of year-round beds. Source: Homeless Management Information System data, 2008 Types of Bed Utilization Rates 1. Average daily utilization rate: The percentage of available year-round equivalent beds occupied on an average night during the 12-month reporting period. Year-round equivalent beds include seasonal beds that have been pro-rated for the portion of the year that they are available. 2. Turnover rate: The total number of people served per year-round bed during the 12- month reporting period.

68 Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People Transitional Housing Compared to emergency shelters, transitional housing programs have lower bed utilization and turnover rates. About 83 percent of transitional housing beds were occupied on an average day, and beds dedicated to individuals were again more likely to be occupied than those serving persons in families (87 percent versus 78 percent). Not surprisingly, bed turnover rates in transitional housing were much lower than those of emergency shelters. During the one-year reporting period, a transitional housing bed for either individuals or persons in families typically serves two people. Unlike emergency shelters, transitional housing programs located in suburban/rural areas have higher bed utilization rates than those located in principal cities. About 84 percent of transitional housing beds in suburban/rural areas are occupied on an average day compared to 82 percent of beds in principal cities. There is little difference in bed turnover rates by geographic area for transitional housing programs. The 2008 data on bed use reinforced two patterns that have been consistently observed in other studies: (1) emergency shelters have higher average daily utilization rates and turnover rates than transitional housing programs, and (2) beds for unaccompanied individuals have higher average daily utilization rates and turnover rates than beds for persons in families.34 Duration in a shelter and frequency of bed use both affect turnover rates. The shorter the average length of stay and the faster a program can fill a vacant bed, the higher the turnover rate. These findings are consistent with the information reported in chapter 3, which shows that people who stay in emergency shelters had shorter lengths of stay than those who stay in transitional housing programs, and that individuals who stay in both program types had shorter lengths of stay than families. 5.4 Changes in the National Inventory of Residential Programs and Beds, 2006-2008 Changes in the Total Number of Residential Programs and Beds Since 2006, the total number of residential programs in the national inventory of programs serving homeless and formerly homeless persons has increased by 1,454 (see Exhibit 5-9).35 The increase includes an additional 33 emergency shelters (0.5 percent increase since 2006), 199 transitional 34 Burt, Martha and Sam Hall. 2008. Transforming the District of Columbia's Public Homeless Assistance System. Washington D.C.: Urban Institute. 35 There were an additional 126 safe haven programs that were excluded from this analysis because 2008 was the first year in which these programs were reported separately and thus trend data is not available. If safe havens were included, there would be 1,580 more programs in 2008 than 2006.

Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 69 housing programs (2.8 percent), and 1,096 permanent supportive housing programs (21.7 percent). During the same 3-year period, the total number of beds available in residential programs throughout the United States increased by almost 31,000 beds (or 5 percent), reflecting an increase in beds across all program types (see Exhibit 5-10). The number of emergency shelter beds increased by 4,345 (2 percent), the number of transitional housing beds increased by 5,353 (3 percent), and the number of permanent supportive housing beds increased by 18,894 (11 percent). The increase in the inventory of permanent supportive housing programs and beds is particularly noteworthy because it is consistent with HUD’s emphasis on expanding the stock of supportive housing. In collaboration with the Interagency Council on Homelessness, HUD has placed federal policy and funding behind local efforts to end homelessness through permanent supportive housing. Hundreds of city governments have responded by developing “10 year plans” that place a priority on expanding permanent supportive housing in their communities. HUD has also partnered with the Department of Veterans Affairs to administer jointly a new federal Veterans Affairs Supportive Housing (VASH) program. The HUD–VASH program combines rental assistance for homeless veterans with case management and clinical services provided by the Department of Veterans Affairs at its medical centers and in the community. As reported in chapter 2, the number of persons who were chronically homeless remained essentially the same from 2007 to 2008, despite adding nearly 19,000 permanent supportive Exhibit 5-9: Change in the National Inventory of Homeless Residential Programs, 2006-2008 Source: Continuum of Care Application: Exhibit 1, CoC Housing Inventory, 2006-2008 6,0766,1406,043 7,016 7,275 7,215 5,050 5,654 6,146 0 1,000 2,000 3,000 4,000 5,000 6,000 7,000 8,000 2006 2007 2008 Emergency shelter Transitional housing Permanent supportive housing

70 Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People housing beds during this period. It is possible that the number of persons experiencing chronic homelessness kept pace with the new inventory—that is, the new inventory of permanent supportive housing beds offset increases in chronic homelessness—and in the absence of the new inventory, the number of chronically homeless persons would have increased. This finding may also suggest the need to target permanent supportive housing beds more effectively to persons experiencing chronic homelessness. Changes in the Inventory of Beds for Homeless Subpopulations The overall proportion of beds dedicated to homeless individuals and persons in families has remained fairly constant since 2006. The percentage of beds dedicated to homeless persons in families has remained level in emergency shelters, at about 46 percent, and also in transitional housing, at about 53 percent (see Exhibit 5-11). The percentage of permanent supportive housing beds for families has decreased slightly since 2006, from 44 percent to 39 percent in 2008, likely reflecting the increased number of new units resulting from an emphasis on ending chronic homelessness through permanent supportive housing programs (by definition, all chronically homeless persons are individuals). Exhibit 5-10: Change in the National Inventory of Homeless Residential Year- Round Beds, 2006-2008 211,222211,451206,877 205,062211,205 199,709 176,830 188,636 195,724 150,000 160,000 170,000 180,000 190,000 200,000 210,000 220,000 2006 2007 2008 Emergency shelters Transitional housing Permanent supportive housing Source: Continuum of Care Application: Exhibit 1, CoC Housing Inventory, 2006-2008

Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 71 Changes in Average Daily Utilization and Turnover Rates Average daily utilization and turnover rates increased from 2007 to 2008 (see Exhibit 5- 12).36 Overall, utilization rates among emergency shelters and transitional housing programs increased 2.5 and 5.8 percentage points, respectively. Bed turnover rates for both program types changed little from 2007 to 2008. Changes in bed utilization patterns, however, varied depending on the geographic location of programs and beds. Use of emergency shelters on an average day increased in principal cities (5.5 percentage points), but decreased in suburban and rural areas (5.6 percentage points). The decrease was attributed to a large decrease among emergency shelters that served families (from 93.9 percent in 2007 to 78.3 percent in 2008), which offset a slight increase among emergency shelters that served individuals (from 89.7 percent in 2007 to 91.9 percent in 2008). Bed turnover rates declined very slightly. 36 The rates reported in the 2008 AHAR were based on year-round equivalent beds. A year-round equivalent bed is equal to the total number of year-round beds plus the total number of seasonal beds in proportion to the amount of time these beds were available during the one-year reporting period. In previous AHARs, both the average daily utilization and turnover rates were based on year-round beds. Rates based on year- round equivalent beds are more precise in that these rates account for seasonal beds, which, in some communities, represent a large percentage of their total bed inventory. 47%46%46% 54%53%52% 39%38% 44% 0% 10% 20% 30% 40% 50% 60% 2006 2007 2008 Emergency shelter Transitional housing Permanent supportive housing Source: Continuum of Care Application: Exhibit 1, CoC Housing Inventory, 2006-2008 Exhibit 5-11: Change in the Percentage of Beds Dedicated to Persons in Families by Program Type, 2006-2008

72 Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 5.5 Summary of the Nationwide Capacity of Residential Programs for Homeless People Use of transitional housing programs increased in principal cities and surged in suburban/rural areas. The increase in principal cities (3.2 percentage points) included an increase in bed use among both individuals (4.1 percentage points) and persons in families (2.1 percentage points). In suburban/rural areas, the use of beds in transitional housing programs increased by 10.3 percentage points, which was consistent across programs serving individuals and families. These findings were consistent with the sizable increase in suburban/rural homelessness that was reported in chapter 3. In sum, the bed inventory data reported by CoCs show that:  The 2008 national inventory of residential programs and year-round beds serving homeless and formerly homeless persons included an estimated 19,563 residential programs and an estimated 614,042 beds.  The 2008 national bed inventory included 20,413 seasonal beds and 37,141 overflow or voucher beds. If these beds are added to the total number of year-round shelter Exhibit 5-12: Average Daily Utilization and Turnover Rate of All Year-Round Equivalent Beds by Program Type and by Geographic Area, 2007- 2008a Total Principal City Suburban/RuralRatesb 2007 2008 2007 2008 2007 2008 Average Daily Utilization Rate Emergency Shelter 88.5% 91.0% 87.6% 93.1% 91.4% 85.8% Transitional Housing 76.9% 82.7% 78.6% 81.8% 73.7% 83.9% Turnover Rate Emergency Shelter 7.3 6.9 7.5 6.7 6.6 7.3 Transitional Housing 1.8 1.8 2.0 1.8 1.5 1.8 a The rates reported in the exhibit were based on year-round equivalent beds. A year-round equivalent bed is equal to the total number of year-round beds plus the total number of seasonal beds in proportion to the amount of time these beds were available during the one-year reporting period. The rates reported for 2007 will not match the rates reported in the 2007 AHAR because previous AHARs calculated utilization rates based on year-round beds. Rates based on year-round equivalent beds are more precise in that these rates account for seasonal beds, which, in some communities, represent a large percentage of their total bed inventory. b The exhibit provides two types of bed utilization rates—average daily bed utilization rates and bed turnover rates. The average daily bed utilization rate is calculated by dividing the average daily census during the study period by the total number of year-round beds in the current inventory and then converting it to a percentage. The turnover rate measures the number of persons served per available bed over the 12-month period. It is calculated by dividing the number of persons served by the number of year-round beds. Source: Homeless Management Information System data, 2007 – 2008

Chapter 5: The Nationwide Capacity of Residential Programs for Homeless People 73 beds in emergency shelters and transitional housing programs, the nation’s peak bed capacity for homeless persons in 2008 was 473,838 beds.  The increase in the nationwide inventory of programs between 2006 and 2008 for homeless and formerly homeless persons was driven almost entirely by the 22 percent increase in the inventory of permanent supportive housing programs.  Between 2006 through 2008, the total number of beds available in residential programs throughout the United States increased by almost 31,000 (5 percent), reflecting an increase in beds across all program types.  Between 2007 and 2008, the average daily bed utilization rate increased overall, but surged by 10 percentage points among transitional housing programs in suburban and rural areas.

Chapter 6: Looking Ahead 75 Chapter 6 Looking Ahead The 2008 AHAR is the first report to provide year-to-year trend information on the prevalence of homelessness nationwide, the demographic characteristics of homeless people, and the way homeless people use the residential services system. The trend information is based on HMIS data collected at the local level and covers a two-year period, from October 1, 2006-September 30, 2007 and October 1, 2007-September 30, 2008. It is also the first report to compare PIT estimates reported by CoCs across multiple years. The trends observed in this report reinforce some of the findings from previous AHARs. Namely, homelessness remains predominately an urban phenomenon and most people are homeless as individuals rather than as members of families. But trends in the 2008 AHAR also provide an early indication of how homelessness may be changing over time and whether the current economic and foreclosure crisis has led to higher rates of homelessness. Overall, the number of sheltered homeless persons has remained relatively unchanged from 2007 to 2008, at about 1.6 million people over the course of the year, but the composition of the sheltered homeless population has shifted appreciably. During the two-year period, the number of sheltered persons in families increased by 9 percent, and families now represent nearly one-third of the entire sheltered population, up from 29 percent in 2007. This shift has occurred simultaneously with another important shift: between 2007 and 2008, the share of the overall sheltered homeless population living in suburban and rural areas increased from 23 percent to 32 percent. So far there is little evidence to suggest that the early months of the economic recession have created a surge in the number of sheltered homeless persons, but the early signs of the recession’s impact are present. In fact, it may be premature to expect these changes in the 2008 AHAR because the impact of the crisis continues to unfold and the data collection period for the 2008 AHAR ended on September 30, 2008, just as the crisis was accelerating. Also, there is an expected time delay between the moment someone loses her job or home and the moment she enters the shelter system. People typically would rely on other housing options—such as family and friends—before resorting to the shelter system. Data in the 2008 AHAR reinforce this point. Between 2007 and 2008, there was an increase in the share of people coming to shelters who were living with family or friends the night before entering a homeless residential facility, as well as an increase in the percentage that were staying in a place for one year or more before becoming homeless. These trends probably reflect the early signs of the economic downturn.

76 Chapter 6: Looking Ahead 6.1 The 2009 AHAR The 2009 AHAR will continue to provide Congress and the nation with updated counts of homelessness nationwide, including counts of individuals, persons in families, and special population groups such as chronically homeless people and persons with disabilities. The next report will also use trend data for three years (2007-2009) to explore changes in the demographic profile of homelessness; where people use emergency shelter and transitional housing; where people were just before they entered a residential program; how much time they spend in shelters over the course of a year; and the size and use of the U.S inventory of residential programs for homeless people. These topics will be explored using data from an ever-expanding group of communities that participate in the AHAR. Between 2007 and 2008, the number of communities that provided useable data to the AHAR increased from 98 to 222, the largest increase since HUD first began collecting data for the AHAR. HUD expects this trend to continue, and future AHARs will soon be reflecting data collected by the majority of Continuums of Care nationwide. As a result, the precision of the national estimates are expected to improve with each successive report. The 2009 AHAR will also feature two important additions: a special chapter on homeless veterans and data on HUD’s efforts to prevent homelessness and re-house homeless people through the Homelessness Prevention and Rapid Re-Housing Program (HPRP). The chapter on homeless veterans comes at a time when many service men and women are returning from active duty in Iraq and being deployed to Afghanistan. Thus, the chapter will provide an important baseline understanding of homelessness among veterans that, in turn, can be used to assess how homelessness among veterans may change over time. In addition, as part of the American Recovery and Reinvestment Act of 2009, Congress allocated $1.5 billion for a Homelessness Prevention Fund, which supports HPRP. The purpose of HPRP is to provide homelessness prevention assistance to households who would otherwise become homeless—many due to the economic crisis—and to provide assistance to rapidly re-house persons who are homeless. HUD will begin collecting data from HPRP programs nationwide and report this information in the 2009 AHAR. HUD continues to view the AHAR as the primary resource for up-to-date information about homelessness based on locally-derived HMIS data and is exploring ways to make these data readily accessible to states, localities, and the general public. Based on the AHAR, policymakers and practitioners alike will be able to better understand homelessness in their communities, allocate local homeless assistance funds effectively, improve program operations, and work toward the ultimate goal of ending homelessness.

Appendix A A-1

Appendix A: List of 2008 AHAR Sample Sites and Contributing Communities

A-2 Appendix A

Appendix A A-3

A-4 Appendix A

Appendix A A-5

A-6 Appendix A

Appendix A A-7

A-8 Appendix A

Appendix A A-9

A-10 Appendix A

Appendix A A-11

A-12 Appendix A

Appendix A A-13

A-14 Appendix A

Appendix A A-15

Appendix B B-1

Appendix B: Data Collection and Analysis Methodology

B-2 Appendix B B.1 Introduction This document summarizes the methodology for producing the 2008 Annual Homeless Assessment Report (AHAR). Abt Associates and the University of Pennsylvania Center for Mental Health Policy and Services Research (the AHAR research team) developed the methodology.

The 2008 AHAR is based on two primary sources of data:

1. Homeless Management Information Systems (HMIS). The HMIS data were collected from a nationally representative sample of communities 1 and cover a one-year reporting period, October 1, 2007 to September 30, 2008. The data contain information on homeless persons who used emergency shelters or transitional housing at any point during this time period. Data are unduplicated at the community-level and reported in the aggregate. HMIS data include information on the number, characteristics, and service- use patterns of homeless persons. Each AHAR incorporates HMIS data for the most recent, one-year reporting period and compares these data to previous findings. The 2008 AHAR provides comparisons of HMIS data from 2006-2007 (first reported in the 2007 AHAR) to data from 2007-2008.

2. Continuum of Care (CoC) applications. The CoC application data were collected from all CoCs in 2008, and the 2008 AHAR compares these data to data from the previous two years. The CoC application data complement the HMIS-based data by including an estimate of the number of unsheltered homeless persons on a single night in January. They also include an estimate of the number and basic demographic characteristics of sheltered homeless persons on that night and the number of emergency shelter and transitional housing beds available to serve homeless persons. The information comes from the CoC applications that all CoCs must complete to be eligible for HUD McKinney-Vento Act funding.

The remainder of this appendix describes the AHAR sample data in more detail. Section B-2 discusses the population represented by the AHAR sample and the information collected about persons experiencing homelessness. Section B-3 describes how the nationally representative sample was selected and the number of communities that were able to contribute local HMIS data to the AHAR. Section B-4 presents the results of the data cleaning process and describes how usable data were identified for the final AHAR analysis

1 Data from AHAR sample sites is supplemented with data from other Continuums of Care that were not selected as part of the original sample but chose to contribute their HMIS data for the AHAR. These communities are called ‘contributing communities’; unlike AHAR sample sites, contributing communities only represent themselves in the national estimates, meaning their data is not weighted to represent other communities to produce the national estimate.

Appendix B B-3 file. Section B-5 describes the process for developing the analysis weights for each site to produce nationally representative estimates.

B.2 Data and AHAR Reporting Categories This section describes the target population for inclusion in the AHAR sample, the source of data, and the data collection process.

Target Population for the AHAR Sample The HMIS-based data in the AHAR sample includes information on all persons experiencing homelessness who used an emergency shelter or transitional housing facility at any time during a one-year period, from October 1, 2007 through September 30, 2008.

The sample does not include individuals who are homeless but live in an area not within a Continuum of Care, or individuals who live in a CoC community but do not use an emergency shelter or transitional housing program. However, given that CoCs cover 97 percent of the U.S. population,

including all areas thought to face a high rate of homelessness, few homeless persons are likely to live outside CoC communities. The target population also excludes CoCs in Puerto Rico and other U.S. Territories. Hence, the estimates represent the 50 states and the District of Columbia. The unsheltered homeless population—persons who live on the streets or other places not meant for human habitation—is not represented by the HMIS data in the sample if such persons do not use an emergency shelter or transitional housing facility at any time during the one-year data collection period.

One caveat associated with the use of HMIS data for national reporting is that an important subset of homeless service providers is not permitted to participate fully in data collection. The 2005 Violence against Women and Department of Justice Reauthorization Act prohibits “victim service providers” 2 from entering personally identifying information into an HMIS. Even though CoCs were required to include these programs as part of their housing inventory in their funding application, we excluded their beds from our extrapolations; thus, the national estimate of the sheltered homeless population does not include persons using residential “victim service” providers.

2 The term victim service provider is defined as “a nonprofit, nongovernmental organization, including rape crisis centers, battered women’s shelters, domestic violence transitional housing programs, and other programs whose primary mission is to provide services to victims of domestic violence, dating violence, sexual assault, or stalking” (72 FR 5056, March 16, 2007).

B-4 Appendix B Homeless Management Information System Data The information on homeless persons in the AHAR sample is based on HMIS data collected by local homeless assistance providers. HMIS are computerized data collection applications operated by CoCs that store data on homeless individuals and families who use homelessness assistance services.

HMIS data have some important features. First, they have been standardized nationally in accordance with HUD’s National HMIS Data and Technical Standards Notice (Data Standards). 3

All HUD McKinney-Vento–funded homeless programs are required to collect 14 universal data elements from every client served. 4 The Data Standards define each data element. The universal data elements include information on a client’s demographic characteristics (e.g., date of birth, ethnicity and race, gender, veteran status, and disability status) and recent residential history (e.g., residence before program entry, program entry and exit dates, and zip code of last permanent address). The data are essential to obtaining an accurate picture of the extent, characteristics, and patterns of service use of the local homeless population.

Second, HMIS data include personally identifying information that allows local communities to produce an accurate de-duplicated count of homeless persons in their communities, including a client’s full name, date of birth and Social Security Number. The personally identifying information may be used in combination with other client-level information to calculate the number of unique users of homeless services and to identify persons who use several types of services.

Third, HMIS data may be manipulated to produce a more comprehensive picture of homelessness when compared to older data collection systems (e.g., paper records). Given that the data are stored electronically in sophisticated software applications, data users may produce cross- tabulations and other outputs that were impractical or impossible before the advent of HMIS. As a result, HMIS data offer new opportunities to study the nature and extent of homelessness.

AHAR Reporting Categories To facilitate the AHAR reporting process, the AHAR research team developed five reporting categories that are used to collect information from participating communities. All of the information required in the reporting categories is based on the universal data elements specified in the HMIS Data Standards. The five reporting categories are:

1. Individuals served by emergency shelters (ES-IND)

3 69 FR 45888, July 30, 2004. 4 Two of the universal data elements (Veterans Status and Disabling Condition) are asked of adults only; two other data elements (Residence Prior to Program Entry and Zip Code of Last Permanent Address) are asked of adults and unaccompanied youth only.

Appendix B B-5 2. Individuals served by transitional housing facilities (TH-IND) 3. Families served by emergency shelters (ES-FAM) 4. Families served by transitional housing facilities (TH-FAM) 5. A summary table

Reporting categories 1 through 4 contain several sections. The first section is an extrapolation worksheet for estimating the total number of individuals or persons in families that used an emergency shelter or transitional housing facility during the data collection period. This section guides the community through a process for estimating the number of individuals or persons in families served by providers participating in HMIS as well as by nonparticipating providers. A limited amount of data from the HMIS and communities’ bed inventory is required to complete the extrapolation. The remaining sections in each set of reporting categories are designed to capture information about the homeless population in the community. Each set of reporting categories is designed with embedded codes to check for data errors, such as missing values or inconsistent information. A summary sheet of data errors is automatically generated as communities complete the reporting categories, prompting communities to review and correct any errors.

The final set of reporting categories —the summary tables—is designed to save time and increase data accuracy. The tables provide estimates of the total unduplicated count of persons who used a participating and nonparticipating emergency shelter or transitional housing program in each jurisdiction during the data collection period. The summary tables also show estimates of the demographic characteristics of the service-using population, patterns of program use, and the average daily utilization rate among persons accessing shelters and transitional housing. The summary tables automate many calculations and are designed with embedded data quality checks that list error messages when inconsistent information is entered.

The data submission process is channeled through the AHAR Exchange, a web-based data collection instrument designed specifically for the AHAR. Communities login to the AHAR Exchange using a unique username and password and submit the data by either typing the aggregate data into each reporting category or by uploading all their data via an XML schema into the appropriate reporting category. Each community is assigned a data quality reviewer (a member of the research team) who reviews each submission and works collaboratively with representatives from the community to fix any data quality issues. A public version of the AHAR Exchange is available for viewing and local use: http://sandbox.hmis.info/.

B-6 Appendix B B.3 Sample Selection This section describes the procedures for selecting a nationally representative sample of 102 jurisdictions for the AHAR. 5

CDBG Jurisdictions Are the Primary Sampling Units The AHAR uses the geographic areas defined for the allocation of CDBG funds as the primary sampling unit. The four types of CDBG jurisdictions are:

 Principal cities 6

 Cities with 50,000 or more persons (that are not principal cities)  Urban counties  Rural areas or non-entitlement jurisdictions

CDBG jurisdictions constitute the basic building blocks of CoCs. In some cases, the CDBG jurisdiction and the CoC represent the same geographic area (e.g., principal cities are often a single CoC), but, in other situations, the CDBG jurisdiction is a geographic subunit of the CoC (e.g., a small city with 50,000 or more persons may be a subunit of a countywide CoC). The selection of 102 CDBG jurisdictions ensures the inclusion of a wide range of sites in the AHAR as well as the reasonably precise measurement of the characteristics of homeless persons and their patterns of service use.

The U.S. Department of Housing and Urban Development provided a sampling frame for the selection of CDBG jurisdictions. The sampling frame is a list of all 3,142 CDBG

5 The initial AHAR sample consisted of 80 jurisdictions. Some jurisdictions from the original sample— especially jurisdictions representing rural areas—were unable to provide data to the AHAR because of HMIS implementation issues or other data quality concerns. In addition, several of the rural sample sites did not have any homeless residential service providers located in their jurisdiction. As a result, we were unable to report data by geography. In an effort to improve the scope and quality of data from rural jurisdictions, 22 additional rural jurisdictions were added to the AHAR sample. Thus, there are now 102 AHAR sample sites. 6 The original file from which the sample was selected used the category of “central city” for CDBG jurisdictions rather than “principal city.” However, the CDBG program moved to designation of principal city rather than central city following the OMB guidance, and the definition of central city and principal city are slightly different (see 24 CFR Part 570). Of the 482 CDBG central city jurisdictions that existed both before and after the definition change, 327 central city jurisdictions (68%) became principle cities with the definition change. A small number of non-central cities (85 out of 2,501) in the original file were categorized as principal cities in the 2007 CDBG file. In our analysis by CDBG jurisdiction and in procedures for adjusting the sampling weights, we used the community’s current CDBG jurisdiction to ensure that our results accurately represented the current system for designating CDBG jurisdictions.

The 2008 Annual Homeless Assessment Report

Appendix B B-7 jurisdictions within the 430 CoCs in the 50 states as of 2002. 7 The next section describes the decision to stratify the sites based on geographic type, along with the procedures for selecting certainty and non-certainty sites.

Stratifying the Sample by Type of Geographic Area A CDBG jurisdiction may be a large principal city of a metropolitan area, a smaller city with a population of 50,000 or more, one or more suburban or urban fringe counties, or a rural area. As such, the number of homeless persons in each jurisdiction varies considerably.

Using the relative size of the homeless population in each CDBG jurisdiction to select a sample may increase the precision of the estimates for any particular sample size. However, with the number of homeless persons in each CDBG jurisdiction unknown, the study team assumed that the total population in each CDBG jurisdiction provided a measure of relative size of the homeless population for purposes of sample selection. The study team premised the assumption on the likelihood that the number of homeless persons is correlated with the total population in the area served by the CDBG jurisdiction. The team further refined the assumption by dividing the sample into strata based on the expected rate of homelessness. 8

Earlier research on homelessness indicates that the rate of homelessness varies by type of geographic area. For example, Burt (2001) found that 71 percent of the homeless persons using homeless-related services are located in principal cities but that only 30 percent of the total U.S. population lives in principal cities. 9 By contrast, rural areas account for 9 percent of the homeless population, but 20 percent of the overall population. Further, suburban/urban fringe areas represent 21 percent of homeless persons, but 50 percent of the overall population. These findings suggest that, before using the total population as a proxy for the relative size of the homeless population, the CDBG jurisdictions should be stratified by type of geographic

7 HUD provided a file called “COC_GeoAreasInfo.xls” with a list of 3,219 CDBG jurisdictions, jurisdiction type, and population of each jurisdiction. Geographic areas in the U.S Territories and Puerto Rico and three duplicate records were eliminated, resulting in a sampling frame of 3,142 CDBG jurisdictions. In addition, four CDBG areas in Massachusetts and one in New Hampshire included overlapping geographic areas and double-counted the population; therefore, the population was evenly divided across the overlapping CDBG jurisdictions before sampling. 8 Sampling based on the expected rate of homelessness is an attempt to obtain more precise estimates than those yielded by a simple random sample. If the proxy for the expected rate of homelessness is not correlated with the actual rate of homelessness, the resulting estimates will still be unbiased; however, the extra precision gains go unrealized. 9 Burt, Martha. 2001. Homeless Families, Singles, and Others: Findings from the 1996 National Survey of Homeless Assistance Providers and Clients. Housing Policy Debate, V12 (4), 737-780. This report presents the share of the homeless population by urban/rural status. The share of the population in each type of geographic area comes from the author’s calculations based on March 1996 Current Population Survey data. The results from the Burt study were based on central cities rather than principal cities, but we refer to them as principal cities here because of the high degree of overlap and to make the discussion easier to follow.

B-8 Appendix B area to account for the fact that the ratio of homeless persons to the population varies across geographic areas. Hence, the study team divided the CDBG jurisdictions into four groups based on their classification for the allocation of CDBG funds: principal cities, other cities larger than 50,000, urban counties, and rural areas (i.e., counties that are part of non- entitlement areas). Such stratification increases the precision of estimates.

Very Large CDBG Jurisdictions Selected with Certainty Given that the size of the population across CDBG jurisdictions is skewed by a few very large jurisdictions covering areas with several million residents, a useful strategy for reducing sampling variability in the estimated number and characteristics of homeless persons is to select very large jurisdictions in the sample with certainty. Selecting a CDBG jurisdiction with certainty means that the CDBG jurisdiction represents only itself in the sample estimates but ensures that the sample does not exclude the largest jurisdictions, whose number and characteristics of the homeless population could substantially affect national estimates. Exhibit B-1 lists the 18 CDBG jurisdictions selected with certainty.

For selecting the certainty sites, the study team divided the CDBG jurisdictions into the four geographic-type strata. Assuming the rate of homelessness was the same in each area within each stratum, the study team calculated the standard deviation (square root of the variance) of the number of homeless persons for the entire stratum. The team then recalculated the standard deviation by excluding the largest site (as if that site were taken with certainty) to obtain a relative estimate of the reduction in the variance of the estimates that would occur if that site were selected with certainty. In the event of substantial reduction in the variance due to the selection of the certainty unit, the overall variance of the sample estimates will be smaller as the variance contribution to the estimate from the certainty sites is zero. The process of selecting the next-largest site as a certainty site continued until the reduction of the variance or standard deviation was small or marginal. The process resulted in the identification of 11 certainty sites consisting of eight principal cities, one other city larger than 50,000, and two urban counties (but no non-entitlement areas).

Based on earlier research findings showing that homeless persons are disproportionately located in principal cities, the study team identified 7 additional principal cities as certainty sites, for a total of 15 principal cities in the certainty sample (and 18 certainty sites in total). The team selected the 7 additional principal cities with certainty because the cities had among the largest populations of persons living in emergency and transitional shelters in the 1990 and 2000 Census counts. 10 All 7 certainty sites had one of the 10 largest counts in

10 For 1990 counts, see U.S. Department of Housing and Urban Development. “Allocating Homeless Assistance by Formula.” A Report to Congress, 1992. For 2000 counts, see U.S. Census Bureau. “Emergency and Transitional Shelter Population: 2000.” A Census 2000 Special Report.

Appendix B B-9 either 1990 or 2000. 11 Given that so many homeless persons live in these cities, it is important to include them with certainty in a nationally representative sample.

Exhibit B-1: Geographic Characteristics and Population of 18 Certainty Sites Geographic Area Type of CDBG Entity Size of Housed Population Census Region CoC Name 1 NEW YORK CITY Principal City 8,008,278 Northeast New York City Coalition/CoC 2 LOS ANGELES Principal City 3,694,820 West County of Los Angeles, CA 3 CHICAGO Principal City 2,896,016 Midwest Chicago CoC 4 HOUSTON Principal City 1,953,631 South Houston/Harris County 5 PHILADELPHIA Principal City 1,517,550 Northeast City of Philadelphia 6 PHOENIX Principal City 1,321,045 West Maricopa CoC 7 SAN DIEGO Principal City 1,223,400 West City of San Diego Consortium 8 DALLAS Principal City 1,188,580 South Dallas Homeless CoC 9 DETROIT Principal City 951,270 Midwest City of Detroit CoC 10 SAN FRANCISCO Principal City 776733 West City and County of San Francisco 11 BOSTON Principal City 589,141 Northeast City of Boston 12 WASHINGTON, DC Principal City 572,059 South District of Columbia Homeless Services 13 SEATTLE Principal City 563,374 West Seattle-King County CoC 14 CLEVELAND Principal City 478,403 Midwest Cuyahoga County/Cleveland CoC 15 ATLANTA Principal City 416,474 South Atlanta Tri- Jurisdictional 16 LOS ANGELES COUNTY Urban County 2,205,851 West County of Los Angeles, CA 17 COOK COUNTY Urban County 1,712,784 Midwest Cook County CoC 18 ISLIP TOWN City >50,000 322,612 Northeast Suffolk County CoC Group

11 The other 8 certainty sites in principal cities were all ranked in the top 15 in the 1990 or 2000 Census counts.

B-10 Appendix B

Selection of Non-Certainty Sample The selection of the non-certainty sites occurred in two phases. Phase one was completed in 2005 and included 62 non-certainty sites. The 62 non-certainty sites and the 18 certainty sites (80 total sample sites) constituted the original sample for the 2005, 2006, and 2007 AHARs. Phase 2 was completed for the 2008 AHAR and added 22 non-certainty sites to the original sample.

Phase 1: Selecting 62 Non-Certainty Sites. To select the 62 non-certainty sites for the original sample, the study team divided the 3,124 CDBG jurisdictions into 16 strata based on the four types of geographic areas and Census regions. As discussed earlier, the team divided the sample into strata based on the type of geographic area because earlier research indicated that the rate of homelessness is higher in principal cities than in other areas. The team further divided the sample into Census regions because business cycles might affect regions differently and result in variation in rates of and trends in homelessness across regions. Dividing the sample into strata that are more similar in terms of the rate of homelessness and the characteristics of homeless persons than the overall population reduces the variance of the sample estimates for a particular sample size. Stratified sampling also eliminates the possibility of some undesirable samples. For example, with a simple random sample, one possible sample might include sites only in rural areas or sites only in the Northeast, both of which are undesirable samples.

One possibility considered for the non-certainty sample was allocation of the sample to the stratum in proportion to the population in each stratum. However, such an approach ignores the research indicating that a disproportionate share of the homeless is located in principal cites. Ignoring information on the location of the homeless population would lead to a relatively high degree of imprecision in national estimates such that 20 of the 62 non- certainty sites would be allocated to principal cities, 6 to non– principal cities, 16 to urban counties, and 20 to rural areas. The same number of rural areas as principal cities would be selected even though earlier research suggests that only 9 percent of the homeless population lives in rural areas whereas 70 percent lives in principal cities.

Another possibility under consideration for the non-certainty sample was allocation of the total non-certainty sample of 62 CDBG jurisdictions to each of the 16 strata in proportion to the adjusted population in each stratum, where the adjustment accounts for different rates of homelessness across geographic areas. This allocation method produces the highest degree of precision of national estimates for a given sample size. The adjusted population is the population of persons living in an area multiplied by an adjustment factor for the expected rate of homelessness in that area. With the rate of homelessness in principal cities roughly five times that of other areas, the study team multiplied the population in principal cities by five so that the adjusted populations would reflect the relative number of homeless persons

Appendix B B-11 expected in each stratum. 12

If the adjusted population were used to allocate the non-certainty sites across the strata, 39 of the 62 original non-certainty sample sites would have been allocated to principal cities, 4 to non– principal cities, 8 to urban counties, and 11 to rural areas. While optimal for national estimates, the number of sites in the non–principal city stratum was too small for subnational estimates.

The sampling allocation procedure ultimately used for AHAR data collection strikes a balance between the most precise national estimates possible with a sample of 62 non- certainty sites and reasonably sized samples from each of the four types of geographic areas. The study team allocated the 62 original non-certainty sample sites across the 16 strata based on the square root of the adjusted population. The result is a sample allocation between the allocation in proportion to the population and the allocation in proportion to the adjusted population. Accordingly, 27 of the 62 original non-certainty sites are in principal cities, 8 are in non– principal cities, 13 are in urban counties, and 14 are in rural areas. The allocation means lower variances of the estimates than either simple random sampling or sampling in direct proportion to the population and provides better representation of non– principal city areas than the allocation in proportion to the adjusted population.

To select the non-certainty sites in each stratum, the study team divided the sites into groups based on size and then randomly selected one site from each group. The number of non- certainty sites allocated to each stratum determined the number of groups, and each group in a stratum contained the same number of sites. Sampling from groups based on population size is beneficial in that it ensures that the sample has a similar distribution of CDBG jurisdiction sizes as the population. Given that the size of the homeless population is expected to correlate with the total population within strata, similarity in distribution is an important feature of the sample.

Phase 2: Adding 22 Rural Non-Certainty Sites. The data collection results from the 2005- 2007 AHAR reports indicated that many rural communities (or non-entitlement CDBG areas) did not have emergency shelters or transitional housing programs located in these jurisdictions. Among the few rural sample sites that did have emergency shelters and/or transitional housing programs, many of those programs were not entering data into an HMIS. As a result, previous AHAR reports did not capture information from many rural jurisdictions, and the lack of data increased the variance of the AHAR estimates and made the analysis of rural/suburban versus urban homelessness less reliable.

12 The ratio was determined as follows. Burt (2001) found that 71 percent of the homeless population lived in central cities in 1996. At the same time, Current Population Survey data indicate that only 30 percent of the overall population lived in central cities at that time. The ratio of the share of the homeless population to the share of the overall population in central cities is 2.36. The ratio is 0.42 for non– principal city portions of Metropolitan Statistical Areas and 0.46 for rural areas. Dividing the principal city ratio by the rural ratio (2.36/0.46) equal 5.1, suggesting that the rate of homelessness is about five times higher in central cities than in rural areas.

B-12 Appendix B

In 2008, 22 new rural communities were added to the AHAR sample, increasing the total number of rural jurisdiction to 36 and the total number of AHAR sample sites to 102. The new AHAR sample sites were selected in the same manner as the original non-certainty sample sites. The original 2002 sampling frame of 3,142 CDBG jurisdictions within the 430 CoCs in the 50 states was used to select the new rural communities. However, the original file was compared with an updated 2006 CDBG list of jurisdictions to remove from the sampling frame jurisdictions that had either merged with other jurisdictions since 2002 or had changed their status from non-entitlement (rural) areas to entitlement areas.

The sample was stratified to ensure that each of the four census regions was represented. The goal was to select at least three rural communities from each census region that had at least one emergency shelter or transitional housing program. In some cases, more than three communities for a particular region were selected if inventory information reported by CoC suggested that the communities did not have any emergency shelters or transitional housing programs. That is, from each region, we randomly selected rural jurisdictions until we had at least three rural jurisdictions with at least one emergency shelter or transitional housing program. In total, 22 new rural sample sites were added; three from the Northeast region; seven from the South region; seven from the Midwest region; and five from the West region.

The final AHAR sample contains 102 sample sites, and Exhibit B-2 shows the total number of certainty and non-certainty sites selected from each region-CDBG type stratum. The sample sites contain over 40 million persons, or approximately 16 percent of the population living within CoC communities and 14 percent of the U.S. population. The expectation is that the sample will contain an even higher proportion of the U.S. homeless population because the selection procedures intentionally oversampled areas with a high rate of homelessness (i.e., principal cities). About two-fifths of the selected sites (42 sites) are principal cities, even though only one-third of the total population lives there. The other 60 sample sites were distributed across the three remaining CDBG jurisdictions: non– principal cities with a population over 50,000 (9 sites), urban counties (15 sites), and nonentitlement/rural areas (36 sites). Appendix A lists all CDBG jurisdictions in the sample.

Appendix B B-13 Exhibit B-2: Number of Sites in Universe and Sample by Region-CDBG Type Stratum Number of Geographic Areas in Universe Number of Certainty Sites in Sample Number of Noncertainty Sites in Sample Total Sample Northeast Principal City 86 3 5 8 South Principal City 151 4 8 12 Midwest Principal City 124 3 7 10 West Principal City 106 5 7 12 Northeast City >50,000 81 1 2 3 South City >50,000 48 0 2 2 Midwest City >50,000 55 0 1 1 West City >50,000 114 0 3 3 Northeast Urban County 33 0 3 3 South Urban County 54 0 4 4 Midwest Urban County 33 1 3 4 West Urban County 34 1 3 4 Northeast Non-entitlement County 148 0 6 6 South Non-entitlement County 812 0 11 11 Midwest Non-entitlement County 890 0 11 11 West Non-entitlement County 373 0 8 8 Total 3,142 18 84 102

Addition of Contributing Sites In addition to the 102 sample sites selected for the study, many other communities nationwide volunteered to provide data for the report to help produce more precise national estimates. The additional communities are entire Continuums of Care and are termed “contributing sites.” In the 2008 AHAR, 135 contributing communities provided data for use in the AHAR report. As with the sites selected with certainty, data from the contributing sites represent themselves in the national estimates. Appendix A lists the contributing communities in the 2008 AHAR.

B.4 AHAR Data Cleaning This section presents the data cleaning results for the AHAR. For each AHAR sample site and contributing community, the study team reviewed each reporting category (e.g., ES-IND) for reporting irregularities, focusing on three indicators:

 HMIS-bed coverage rate

B-14 Appendix B  Average daily bed utilization rate  Proportion of missing variables

Bed Coverage Rate HMIS-bed coverage rate refers to the proportion of beds in a community that participate in HMIS. The HMIS-bed coverage rate is equal to the total number of HMIS-participating beds divided by the total number of beds in a community. The indicator is important because the accuracy of the extrapolation technique depends on obtaining reasonably high bed coverage rates. 13 The study team evaluated each reporting category on its own merits—that is, calculated an HMIS-bed coverage rate for ES-IND, ES-FAM, TH-IND, and TH-FAM separately—and excluded from the final AHAR analysis any reporting category with an HMIS-bed coverage rate below 50 percent.

Average Daily Bed Utilization Rate Average daily bed utilization rate refers to the frequency of bed use on an average day. It is equal to the number of homeless persons who use a program on an average day during a specified period divided by the total number of year-round equivalent beds 14 in the current inventory during the same period. Utilization rates above 100 percent typically indicated missing exit dates in the HMIS; unusually low utilization rates often suggested that providers did not enter data on all clients served into HMIS. In situations where unusually high or low utilization rates could not be explained or confirmed as accurate by the community, the study team excluded from analysis all data from the reporting category.

Proportion of Missing Variables Missing data limit the ability to present a complete picture of homelessness. Exhibit B-3 presents the proportion of missing values for the weighted 2008 AHAR data. The data element most constrained by missing values was disability status, which was missing for 22 percent of adult clients. Though still a high rate, 2008’s rate of missing disability status is

13 Before releasing the AHAR reporting requirements, the study team tested the extrapolation procedures with data from Philadelphia and Massachusetts under a variety of coverage rate assumptions, taking a random sample of providers (to match 50, 75, and 90 percent HMIS bed-coverage rates) and comparing the extrapolated estimates to the true population counts for these jurisdictions. The findings show that extrapolation estimates were accurate for HMIS bed-coverage rates above 50 percent and were more precise with higher coverage rates. The threshold of an HMIS bed-coverage rate of 50 percent was as representative as possible of a set of participating sample sites. (See 2004 National HMIS Conference Breakout Session Materials “Extrapolation Methods” for more information on the extrapolation testing, available at www.hmis.info.) 14 A year-round equivalent bed counts seasonal beds as partial beds in direct proportion to the length of the covered period for which the provider makes the bed available. For example, a bed from a provider with a seasonal bed open in January, February, and March would count as one-fourth of a bed if the covered period were 12 months.

Appendix B B-15 considerably lower than the missing disability rate in the 2007 AHAR (32.4 percent). The missing data rates for veteran status (7.5 percent) and ethnicity (3.4 percent) were less than half the rate in earlier AHARs. Missing rates have also declined for most other data elements but still remain high for data that communities were not required to collect before release of HUD’s Data Standards: living arrangement before program entry (21.3 percent), length of stay in earlier living arrangement (28.9 percent), and ZIP code of last permanent address (27.1 percent).

Exhibit B-3: Proportion of Missing Values across All AHAR Reporting Categories weighted data), 2008 Variable Percentage Missing Variable Percentage Missing 1. Gender of adults 0.3 8. Disability status 22.0 2. Gender of children 0.4 9. Household type 0.5 3. Ethnicity 3.4 10. Living arrangement before program entry 21.3 4. Race 7.7 11. Length of stay in earlier living arrangement 28.9 5. Age 1.0 12. ZIP code of last permanent address

27.1 6. Household size 0.5 13. Number of nights in program (adult males) 3.2 7. Veteran status 7.5 14. Number of nights in program (adult females) 2.3

The study team did not exclude reporting categories from the AHAR analysis file because of missing data. Instead, the estimates are based on non-missing data, and the team has marked estimates in the AHAR report based on data elements with missing rates over 20 percent.

Based on the data-quality indicators, the study team classified all sample sites and the contributing communities into five categories describing the usability of their AHAR data. Exhibit B-4 summarizes the findings. Overall, 222 communities participated in the AHAR, including 87 sample sites and 135 contributing communities. Overall, 80 communities (33 sample sites and 47 contributing communities) provided usable data across all four reporting categories; 113 communities (25 sample sites and 88 contributing communities) submitted usable data for only some of their reporting categories; and 29 had no emergency shelter or transitional housing providers located within the sample site. 15

15 These sites still contribute to the national count of homelessness because they represent other communities with no providers.

B-16 Appendix B Exhibit B-4: Communities Participating in the 2008 AHAR by Participation Status Total Status Percentage Number Number of Sample Sites Number of Contributing Communities Participating in the AHAR All table shells 20 80 33 47 Partial table shells 28 113 25 88 Complete Zero Providers 7 29 29 - Subtotal 55 222 87 135 Not Participating in the AHAR Submitted unusable data

6 24 5 19 No data submitted 39 155 10 145 Subtotal 45 179 15 164 Total 100 401 102 299

In total, 15 of the 102 sample sites (15 percent) were unable to participate in the AHAR, in most cases because implementation issues prevented the site from producing information from their HMIS. A few of the sites were far enough along to submit data but were still working through implementation problems or had recently made major changes to their system that raised questions about the data quality. The study team judged data to be unusable if the bed coverage rate was below 50 percent; if the bed utilization rates were unreasonably high/low and could not be properly explained; if the community contact expressed concern over data accuracy; or if the other quality control procedures raised issues that site staff could not rectify.

More than twice as many contributing communities (from 98 to 222) provided data for this report than for the previous AHAR report, an increase of 127 percent. Moreover, the number of usable reporting categories increased from 233 in the 2007 AHAR to 507 in the 2008 AHAR. (Exhibit B-5 shows the number of usable reporting categories for the 2008 AHAR.) In total, there were 427,201 person-records reported across the AHAR reporting categories and used to generate the national estimates.

Exhibit B-5: Number of Communities Providing Data by Reporting Category, 2008 Program-Household Type Total Sample Sites Contributing Communities Emergency shelters for individuals 113 32 81 Transitional housing for individuals 122 35 87 Emergency shelters for families 121 39 82 Transitional housing for families 151 47 104 Total 507 153 354 Note: The tallies include only the reporting categories where the site has providers in a given category and provides usable data. The table does not include the 29 complete zero provider sites.

Appendix B B-17 B.5 AHAR Weighting and Analysis Procedures This section describes the process of obtaining national estimates from the raw HMIS data submitted by participating communities. The estimates of the number and characteristics of the homeless population using homelessness services are based on weighted data. The study team designed the sampling weights to produce nationally representative estimates from the sites that provided data. The steps for obtaining the final estimate are listed here and described in more detail below.

 Step 1: Staff from the AHAR sample sites filled out reporting categories with information (raw data) from emergency shelters and transitional housing providers that had entered data into their local HMIS.  Step 2: The raw data were adjusted by reporting category within each site to account for providers that did not participate in the site’s HMIS.  Step 3: Base sampling weights were developed for all selected sites based on the assumption that 100 percent of the AHAR sample sites provided information.  Step 4: Base sampling weights were adjusted to account for contributing sites.  Step 5: Weights were adjusted for nonresponse to determine the preliminary analysis weights.  Step 6: Based on national totals of emergency and transitional housing beds, a post- stratification adjustment was made to arrive at the final analysis weights.  Step 7: A final adjustment factor was derived to account for people who used more than one type of homeless service provider.  Step 8: National estimates were calculated by using the final weight (Step 6) and the final adjustment factor (Step 7).

Step 1: Staff from AHAR sites filled out reporting categories with information from emergency shelters and transitional housing providers that had entered data into their local HMIS. Participating communities logged into the AHAR Exchange—the web-based data collection tool designed for the AHAR—and entered the information (raw data) on the number of homeless persons, their characteristics, and their patterns of service use. The information was reported separately for each reporting category: individuals using emergency shelters (ES-IND); persons in families using emergency shelters (ES-FAM); individuals using transitional housing (TH-IND); and persons in families using transitional housing (TH- FAM). The information was then aggregated into a fifth set of tables, the summary tables, to provide total cross-program estimates for the site. A public version of the AHAR Exchange is available for viewing and local use: http://sandbox.hmis.info/.

B-18 Appendix B Step 2: The raw data were adjusted by reporting category within each site to account for providers that did not participate in the site’s HMIS. Where participation in the HMIS was less than 100 percent, the raw data at each site were upwardly adjusted to account for nonparticipating providers (i.e., providers that did not submit data to HMIS). This adjustment, or extrapolation, was carried out separately by reporting category within each site. The extrapolation technique assumes that nonparticipating providers serve the same number of unique persons per available bed as participating providers during the study period. It makes a small adjustment for the overlap between users of participating and nonparticipating providers. 16

The post-extrapolation results for each site are estimates of the homeless population served by each reporting category and the total sheltered homeless population at all emergency shelters and transitional housing in the entire site during the study period.

Step 3: Base sampling weights were developed on the assumption that 100 percent of the AHAR sample sites provided information.

The study team selected the largest sites (i.e., the CDBG jurisdictions with the largest populations) with certainty. As such, each site’s base sampling weight is 1.0, meaning that each respective site’s data represent only that site. The study team divided the noncertainty sites into 16 strata based on the four Census regions (East, West, Midwest, and South) and four CDBG types (three types of entitlement communities—principal city, urban county, other city with population greater than 50,000—and one type of nonentitlement community). The base sampling weights for the noncertainty sites are the inverse of the probability of selection. For example, if 1 out of 100 sites was selected in a stratum, the base sampling weight for selected sites in that stratum would be 100 (the inverse of 1/100 = 100). Each noncertainty site in a stratum had the same chance of being selected; therefore, each has the same weight.

If all the sample sites provided full AHAR data (in the absence of contributing sites), national estimates of the homeless population would be calculated by multiplying each site’s base sampling weight by the extrapolated number of persons with each characteristic at the site and then aggregating across sites.

Step 4: Base sample weights were adjusted to account for contributing sites.

One hundred and thirty-five communities volunteered to provide their HMIS-based data for the 2008 AHAR. The data from these communities—or contributing communities—increase the reliability of the AHAR estimates. The 135 CoCs that are contributing communities

16 Given that data from nonparticipating providers were not available, it is impossible to verify this assumption. However, it is the most reasonable assumption in that it is accurate when nonparticipating providers are missing at random or at least not systematically missing in a way correlated with the number of people they serve per available bed.

Appendix B B-19 represent 725 CDBG jurisdictions. 17 The study team treated all of these sites as certainty sites and assigned them a weight of 1.0 such that each site would represent only itself in the national estimates. The study team adjusted the base sampling weights of the noncertainty sites downward to represent only the noncontributing sites in their respective stratum. For example, assume that there were two sample sites in a stratum and that both originally had a base weight of 100. If the contributing sites represented 10 CDBG jurisdictions in that stratum, the sample weight for each sample site would be downwardly adjusted to 95. In other words, the two sample sites originally represented 200 sites in their stratum, but, with the contributing sites now representing 10 of those 200 sites, the sample site needs to represent 190 sites. The addition of the contributing sites did not affect the base sampling weights of the certainty sites.

If all the sample sites and contributing sites provided full AHAR data, the study team would calculate national estimates of the homeless population by multiplying each site’s base weight by the extrapolated number of persons with each characteristic at the site and then aggregating across sites.

Step 5: The base weights were adjusted for nonresponse to derive the preliminary analysis weights. The above base weights assume that all the sample and contributing sites provided data for all four reporting categories except for those for which they have no providers in their jurisdiction. Unfortunately, 15 sample sites were not able to provide any usable data, and 25 other sample sites were unable to provide data for all their reporting categories (i.e., they provided partial data). Eighty-eight contributing sites also provided only partial data. In addition, 29 sample sites had no providers (i.e., no emergency shelters or transitional housing programs). The ‘zero provider sites’ are part of the estimate (because they represent themselves and all nonsample zero provider sites in the population) but need to be treated differently from the other sites. Once the study team confirmed that the site had no providers, it needed no further information. Given that the zero provider sites did not have any information for the AHAR reporting categories, none of them was a nonrespondent.

Recognizing that some participating sites provided only partial data (i.e., data on some but not all of their reporting categories) and that the data proved useful for the AHAR report, the study team carried out the nonresponse adjustment to the weights separately for each of the four reporting categories. That is, each site contributing data to the AHAR has four analytic weights—one for each reporting category. However, for any reporting category for which a

17 The AHAR sample consists of CDBG jurisdictions that are either the same as the CoC or part of the area covered by the COC. CDBG jurisdictions are the building blocks of the CoC. The contributing sites volunteered as CoCs. For example, the Iowa State COC represents 104 CDBG jurisdictions: 96 nonentitlement communities and 8 principal cities. Most other contributing sites represent between 1 and 7 CDBG jurisdictions.

B-20 Appendix B site was not able to provide data, the analytic weight is zero. The respondent sites for that reporting category represent the site. (Step 8 describes the procedure for aggregating across reporting categories to arrive at national estimates.)

Below is a description of how the weight for each type of site was adjusted for nonresponse to derive the final analysis weights.

a) The weights of the contributing sites did not change; each contributing site continued to represent itself with an analytic weight of 1.0 for each program-household type for which it provided data. b) The weights of the no-provider sites did not change. Their weight remained the base weight calculated in Step 4 because all zero provider sites in the sample are considered respondents. In essence, the no-provider sites produced a response of 100 percent. Stated differently, since none of the non-response sites has no providers, the no-provider sites would not appropriately represent them. c) For the certainty sites providing data, base weights were adjusted so that the analytic weights represented all certainty sites. The adjustment was made separately for each program-household type within four weighting classes based on region: North, South, East, and Midwest. 18 The nonresponse adjustment was based on the relative number of shelter beds in the nonrespondent sites and accounts for the possibility of a high degree of size variation among certainty sites. The nonresponse adjustment formula follows:

Total number of beds within a reporting category at certainty sites in region ÷ Number of beds within reporting category at respondent certainty sites in region

For example, assume that six of the seven certainty sites in the West provided TH- IND data and that one site did not. If the nonrespondent certainty site had 1,000 TH- IND beds and the six participating certainty sites had 5,000 beds, the weight of the six participating certainty sites would be multiplied by 6/5

(6,000 divided by 5,000). The adjustment assumes that the nonrespondent certainty sites would serve approximately the same number of persons per bed as the participating certainty sites. The nonresponse adjustment for certainty sites was derived separately by region based on the judgment that homeless providers in principal cities in the same region were more likely than principal cities overall to serve persons with similar characteristics.

18 Fifteen of the 18 certainty sites are principal cities; therefore, the nonresponse adjustment essentially occurs within CDBG type.

Appendix B B-21 d) For the noncertainty sites, the weights of the participating sites were upwardly adjusted to represent all the sites meant to be represented by the nonrespondent sample sites. The adjustment was carried out separately for each program-household type within 16 weighting classes based on type of CDBG jurisdiction and region: (1) principal city, (2) city with greater than 50,000 population, (3) urban counties, and (4) and nonentitlement areas. The nonresponse adjustment was the same as that used for certainty sites--the ratio of total number of beds in the weighting class divided by number of beds in participating sites.

Step 6: A post-stratification adjustment was carried out to create final analysis weights. A post-stratification adjustment based on national totals of emergency and transitional housing beds accounted for new CDBG jurisdictions added since 2002 as well as for any differences in the average size of sample and nonsample sites. This final adjustment to the analysis weights applied only to noncertainty sample sites. The preliminary analysis weight (from Step 5) is the final analysis weight for certainty sites, no-provider sites, and contributing sites.

The initial AHAR sample was drawn from the number of CDBG jurisdictions in existence in 2002. Since that time, however, the number of CDBG jurisdictions has increased from 3,142 to 4,115. 19 Therefore, the study team adjusted the analysis weights to account for the expansion. The increase in CDBG jurisdictions was not evenly distributed; most of the growth occurred in the South, particularly in the rural South. Thus, we adjusted the weights separately for each of the 16 strata. The adjustment factor was the ratio of total number of beds in the strata in 2008 (after excluding beds from certainty and contributing communities) to the weighted number of beds in the noncertainty sample sites in the strata providing usable data. 20 The number of beds for the adjustment was based on the housing inventory chart submitted as part of the 2008 CoC application.

The adjustment both corrected for the difference in the number of CDBG jurisdictions in CoCs between 2002 and 2008 and adjusted for any differences in the number of beds per CDBG sample site and CDBG nonsample site in the same stratum.

The Step 6 weights are the final analysis weights for use with the sample and data provided to produce separate national estimates of the homeless population for each reporting

19 The 4,115 CDBG jurisdictions also include nonfunded CDBG jurisdictions not part of the original sampling frame. 20 Several hundred beds on the 2008 CoC application (less than 1 percent of all beds) did not match a known geocode, making unclear the CDBG jurisdiction in which the beds were located--even after manual review. We assigned the beds to CDBG type within each region in the same proportion as the beds with valid geocodes.

B-22 Appendix B category. However, to aggregate the data across reporting categories, a further adjustment is needed to account for persons who used more than one program type during the study period.

Step 7: Final adjustment factor was derived to account for users of several program types.

To calculate national estimates that require data aggregation across the four reporting c categories, an adjustment is needed for persons who used more than one program-household type during the study period. That is, if a person used an emergency shelter for individuals and then a transitional housing program for individuals, the person will appear in more than one set of reporting categories for the study period; aggregation of the numbers from the four reporting categories would double count that person. The needed adjustment is the same type of adjustment embedded in the AHAR summary table for sites providing data on all four reporting categories. For the 80 participating sites (33 sample sites and 47 contributing communities) providing data on all four reporting categories, the adjustment factor was the actual adjustment factor calculated from how much overlap the sites reported with their HMIS data. However, for the 113 participating sites that provided only partial data, it was not possible to calculate the overlap adjustment factor from their data. Instead, for all partial reporting sites, the study team used the average overlap adjustment factor from the 80 sites providing full data. Thus, for partial reporting sites, the overlap adjustment factor was assumed to be 0.9622.

The overlap adjustment factor was calculated as follows:

Total unduplicated number of persons served at the full-reporting sites ÷ Total number of persons served at the full- reporting sites before accounting for persons served by more than one program-household type

Step 8: Calculate national estimates. To calculate national estimates, the study team first calculated the total number of persons with each characteristic within each of the four reporting categories. Then, within each reporting category, the team multiplied the final analysis weight (from Step 7) for each site by the number of persons with that characteristic in that site’s reporting category. Next, the team summed the number of persons in each site across sites to arrive at the estimated number of persons with that characteristic who were served in that reporting category. For estimates of the number of persons served by all four reporting categories, the team summed totals across the four reporting categories and then multiplied by the adjustment factor from Step 7. Percentage calculations followed the same procedures by calculating both the numerator and denominator of the desired percentage.

Appendix C C-1

Appendix C: Continuum of Care Point-in-Time Counts of Homeless Persons

C-2 Appendix C

C1: Changes in Point-In-Time Estimates of Homeless Population by State, 2007-2008 State 2008 Total Homeless Population 2007 Total Homeless Population 2008-2007 Total Change 2008-2007 Percent Change Alabama 5,387 5,452 -65 -1.19% Alaska 1,646 1,642 4 0.24% Arizona 12,488 14,646 -2,158 -14.73% Arkansas 3,255 3,836 -581 -15.15% California 157,277 159,732 -2,455 -1.54% Colorado 14,747 14,225 522 3.67% Connecticut 4,627 4,482 145 3.24% Delaware 933 1,061 -128 -12.06% District of Columbia 6,044 5,320 724 13.61% Florida 50,158 48,069 2,089 4.35% Georgia 19,095 19,639 -544 -2.77% Guam 725 725 0 0.00% Hawaii 6,061 6,070 -9 -0.15% Idaho 1,464 1,749 -285 -16.30% Illinois 14,724 15,487 -763 -4.93% Indiana 7,395 7,358 37 0.50% Iowa 3,346 2,734 612 22.38% Kansas 1,738 2,111 -373 -17.67% Kentucky 8,137 8,061 76 0.94% Louisiana 5,481 5,494 -13 -0.24% Maine 2,632 2,638 -6 -0.23% Maryland 9,219 9,628 -409 -4.25% Massachusetts 14,506 15,127 -621 -4.11% Michigan 28,248 28,295 -47 -0.17% Minnesota 7,644 7,323 321 4.38% Mississippi 1,961 1,377 584 42.41% Missouri 7,687 6,247 1,440 23.05% Montana 1,417 1,150 267 23.22% Nebraska 3,985 3,531 454 12.86% Nevada 12,610 12,526 84 0.67% New Hampshire 2,019 2,248 -229 -10.19% New Jersey 13,832 17,314 -3,482 -20.11% New Mexico 3,015 3,015 0 0.00% New York 61,125 62,601 -1,476 -2.36% North Carolina 12,411 11,802 609 5.16% North Dakota 615 636 -21 -3.30% Ohio 12,912 11,264 1,648 14.63% Oklahoma 3,846 4,221 -375 -8.88% Oregon 20,653 17,590 3,063 17.41% Pennsylvania 15,378 16,220 -842 -5.19% Puerto Rico 3,012 4,309 -1,297 -30.10% Rhode Island 1,196 1,372 -176 -12.83% South Carolina 5,660 5,660 0 0.00% South Dakota 579 579 0 0.00%

Appendix C C-3 C1: Changes in Point-In-Time Estimates of Homeless Population by State, 2007-2008 State 2008 Total Homeless Population 2007 Total Homeless Population 2008-2007 Total Change 2008-2007 Percent Change Tennessee 9,705 11,210 -1,505 -13.43% Texas 40,190 39,788 402 1.01% Utah 3,434 3,011 423 14.05% Vermont 954 1,035 -81 -7.83% Virgin Islands 602 559 43 7.69% Virginia 8,469 9,746 -1,277 -13.10% Washington 21,954 23,379 -1,425 -6.10% West Virginia 2,016 2,409 -393 -16.31% Wisconsin 5,449 5,648 -199 -3.52% Wyoming 751 537 214 39.85% TOTAL 664,414 671,888 -7,474 -1.11%

C-4 Appendix C

C2: Point-In-Time Estimates from January 2008 of Homeless Population by State State Total Sheltered Population Total Unsheltered Population Total Homeless Population State Population Homeless Rate Alabama 3,843 1,544 5,387 4,661,900 0.12% Alaska 1,452 194 1,646 686,293 0.24% Arizona 6,970 5,518 12,488 6,500,180 0.19% Arkansas 2,020 1,235 3,255 2,855,390 0.11% California 46,965 110,312 157,277 36,756,666 0.43% Colorado 6,877 7,870 14,747 4,939,456 0.30% Connecticut 4,020 607 4,627 3,501,252 0.13% Delaware 862 71 933 873,09 0.11% District of Columbia 5,666 378 6,044 591,833 1.02% Florida 20,724 29,434 50,158 18,328,340 0.27% Georgia 8,865 10,230 19,095 9,685,744 0.20% Guam 103 622 725 154,805 0.47% Hawaii 2,703 3,358 6,061 1,288,198 0.47% Idaho 1,250 214 1,464 1,523,816 0.10% Illinois 11,480 3,244 14,724 12,901,563 0.11% Indiana 5,923 1,472 7,395 6,376,792 0.12% Iowa 3,087 259 3,346 3,002,555 0.11% Kansas 1,500 238 1,738 2,802,134 0.06% Kentucky 6,195 1,942 8,137 4,269,245 0.19% Louisiana 3,700 1,781 5,481 4,410,796 0.12% Maine 2,588 44 2,632 1,316,45 0.20% Maryland 6,054 3,165 9,219 5,633,597 0.16% Massachusetts 13,437 1,069 14,506 6,497,967 0.22% Michigan 11,781 16,467 28,248 10,003,422 0.28% Minnesota 6,270 1,374 7,644 5,220,393 0.15% Mississippi 1,206 755 1,961 2,938,618 0.07% Missouri 5,607 2,080 7,687 5,911,605 0.13% Montana 1,007 410 1,417 967,440 0.15% Nebraska 3,227 758 3,985 1,783,432 0.22% Nevada 4,863 7,747 12,610 2,600,167 0.48% New Hampshire 1,535 484 2,019 1,315,809 0.15% New Jersey 11,860 1,972 13,832 8,682,661 0.16% New Mexico 1,748 1,267 3,015 1,984,356 0.15% New York 56,516 4,609 61,125 19,490,297 0.31% North Carolina 8,025 4,386 12,411 9,222,414 0.13% North Dakota 596 19 615 641,481 0.10% Ohio 10,377 2,535 12,912 11,485,910 0.11% Oklahoma 2,803 1,043 3,846 3,642,361 0.11% Oregon 9,946 10,707 20,653 3,790,060 0.54% Pennsylvania 14,079 1,299 15,378 12,448,279 0.12% Puerto Rico 810 2,202 3,012 3,954,037 0.08% Rhode Island 1,142 54 1,196 1,050,788 0.11% South Carolina 3,086 2,574 5,660 4,479,800 0.13% South Dakota 538 41 579 804,194 0.07%

Appendix C C-5 C2: Point-In-Time Estimates from January 2008 of Homeless Population by State State Total Sheltered Population Total Unsheltered Population Total Homeless Population State Population Homeless Rate Tennessee 5,660 4,045 9,705 6,214,888 0.16% Texas 24,080 16,110 40,190 24,326,974 0.17% Utah 3,178 256 3,434 2,736,424 0.13% Vermont 696 258 954 621,270 0.15% Virgin Islands 115 487 602 108,612 0.55% Virginia 6,895 1,574 8,469 7,769,089 0.11% Washington 15,456 6,498 21,954 6,549,224 0.34% West Virginia 1,422 594 2,016 1,814,468 0.11% Wisconsin 4,934 515 5,449 5,627,967 0.10% Wyoming 619 132 751 532,668 0.14% TOTAL 386,361 278,053 664,414 308,277,178 0.22%

The 2008 Annual Homeless Assessment Report

C-6 Appendix C Appendix C-3

Appendix C C-7

C-8 Appendix C

Appendix C C-9

C-10 Appendix C

Appendix C C-11

C-12 Appendix C

Appendix C C-13

C-14 Appendix C

Appendix C C-15

C-16 Appendix C

Appendix C C-17

Appendix D D-1

Appendix D: Counts of Homeless Sheltered Persons Using HMIS Data

D-2 Appendix D Appendix D-1: Estimate of Sheltered Homeless Individuals and Families during a One-Year Period, October 2007–September 2008 Number of Sheltered Persons Household Type

Number Percent All Sheltered Persons… 1,593,794 100.0 …in emergency shelters only 1,228,224

77.1 …in transitional housing only 280,877

17.6 …in both emergency shelters and transitional housing 84,693 5.3

Individuals… 1,092,612 67.9 …in emergency shelters only 885,402 55.0 …in transitional housing only 146,298 9.1 …in both emergency shelters and transitional housing 60,911 3.8

Persons in Families… 516,724 32.1 …in emergency shelters only 354,997 22.1 …in transitional housing only 134,678 8.4 …in both emergency shelters and transitional housing 27,050 1.7

Households with Children 159,142 100.0 Note: Counts may not add up to total because of rounding. Source: Homeless Management Information System data, October 2007–September 2008.

Appendix D-2: Sheltered Homeless Persons by Household Type, October 2007–September 2008 Number Household Type

Number Percent

Number of Homeless Persons 1,593,794 100.0

Individuals 1,092,612 Single adult male households 765,153 47.8 Single adult female households 281,900 17.6 Unaccompanied youth and several-children households 21,705 1.4 Several-adult households 20,488 1.3 Unknown 3,365 --

Persons in Families 516,724 Adults in households with children 203,199 12.7 Children in households with adults 309,259 19.3 Unknown 4,266 -- Note: Counts may not add up to total because of rounding. Source: Homeless Management Information System data, October 2007–September 2008.

Appendix D D-3

Appendix D-3: Seasonal Point-in-Time Count of Sheltered Homeless Persons by Household Type, October 2007–September 2008 Individuals Persons in Families Number of Sheltered Homeless Persons

All Sheltered Persons Number Percent Number Percent

On a single night in October 2007

323,836 180,416 55.7 143,420 44.3 January 2008 348,855 204,117 58.5 144,737 41.5 April 2008 336,124 188,962 56.2 147,161 43.8 July 2008 328,296 181,532 55.3 146,764 44.7

On an average night

338,910 192,999 57.0 145,911 43.1 Note: Counts may not add up to total because of rounding. Source: Homeless Management Information System data, October 2007–September 2008.

D-4 Appendix D

Appendix D-4: Demographic Characteristics of Sheltered Homeless Persons by Household Type, October 2007–September 2008 All Sheltered Persons Individuals Persons in Families Characteristics # % # % # %

Number of Homeless Persons 1,593,794 100.0 1,092,612 100.0 516,724 100.0

Gender of Adults 1,261,391 1,070,543 203,199 Female 452,820 36.0 293,338 27.5 163,942 80.9 Male 805,164 64.0 774,205 72.5 38,836 19.2 Unknown 3,407 -- 3,000 -- 421 --

Gender of Children 328,027 21,909 309,259 Female 163,669 50.1 10,011 46.5 155,223 50.4 Male 163,032 49.9 11,534 53.5 153,060 49.7 Unknown 1,326 -- 364 -- 976 --

Ethnicity Non–Hispanic/non–Latino 1,240,191 80.5 878,655 83.0 370,716 74.6 Hispanic/Latino 300,058 19.5 179,945 17.0 126,212 25.4 Unknown 53,544 -- 34,011 -- 19,797 -- Race White, non–Hispanic/non–Latino 558,238 37.9 447,677 44.6 117,724 24.4 White, Hispanic/Latino 170,002 11.6 110,790 11.0 63,037 13.1 Black or African American 614,024 41.7 371,413 37.0 245,081 50.9 Asian 12,181 0.8 7,985 0.8 4,364 0.9 American Indian or Alaska Native 28,137 1.9 16,964 1.7 11,546 2.4 Native Hawaiian or other Pacific Islander 10,378 0.7 3,392 0.3 7,125 1.5 Several races 78,765 5.4 46,681 4.7 32,829 6.8 Unknown 122,069 -- 87,709 -- 35,019 --

Age Under 1 35,113 2.2 3,082 0.3 32,425 6.3 1 to 5 127,184 8.1 3,452 0.3 124,925 24.4 6 to 12 107,287 6.8 3,201 0.3 105,060 20.5 13 to 17 58,018 3.7 12,149 1.1 46,462 9.1 18 to 30 350,274 22.2 243,609 22.5 110,197 21.5 31 to 50 636,651 40.3 556,949 51.5 85,330 16.7 51 to 61 220,374 14.0 216,283 20.0 6,427 1.3 62 and older 43,450 2.8 43,129 4.0 1,093 0.2 Unknown 15,444 -- 10,757 -- 4,806 --

Persons by Household Size 1 person 1,057,947 66.7 1,068,352 97.8 0 0.0 2 people 146,697 9.3 21,010 1.9 127,059 25.0 3 people 150,983 9.5 2,054 0.2 150,564 29.6 4 people 110,754 7.0 989 0.1 110,818 21.8 5 or more people 119,498 7.5 204 0.0 120,342 23.7 Unknown 7,915 -- 2 -- 7,941 --

Appendix D D-5

Appendix D-4: Demographic Characteristics of Sheltered Homeless Persons by Household Type, October 2007–September 2008 Characteristics All Sheltered Persons Individuals Persons in Families # % # % # % Veteran (adults only) Yes 135,583 11.6 133,431 13.4 3,647 2.0 No 1,031,798 88.4 866,235 86.7 175,798 98.0 Unknown 94,011 -- 70,877 -- 23,755 --

Disabled (adults only) Yes 421,246 42.8 397,807 47.1 27,182 18.4 No 562,560 57.2 447,766 53.0 120,701 81.6 Unknown 277,586 -- 224,970 -- 55,316 -- Note: Counts may not add up to total because of rounding. Source: Homeless Management Information System data, October 2007–September 2008.

D-6 Appendix D

Appendix D-5: Demographic Characteristics of Sheltered Homeless Persons in Emergency Shelters, October 2007–September 2008 Persons in Emergency Shelters Individuals Persons in Families Characteristics # % # % # %

Number of Homeless Persons 1,312,917 100.0 946,313 100.0 382,046 100.0 Gender of Adults 1,070,999 931,866 151,957 Female 354,126 33.1 236,997 25.5 121,365 80.0 Male 714,317 66.9 692,522 74.5 30,363 20.0 Unknown 2,556 -- 2,347 -- 229 --

Gender of Children 240,024 14,255 228,363 Female 119,685 50.1 6,818 49.2 114,152 50.2 Male 119,105 49.9 7,042 50.8 113,357 49.8 Unknown 1,234 -- 395 -- 854 -- Ethnicity Non–Hispanic/non–Latino 1,012,782 79.1 752,236 81.3 271,293 73.2 Hispanic/Latino 267,697 20.9 172,555 18.7 99,509 26.8 Unknown 32,438 -- 21,522 -- 11,244 -- Race White, non–Hispanic/non– Latino 441,171 36.3 371,810 42.8 74,367 20.5 White, Hispanic/Latino 156,366 12.9 108,068 12.4 51,095 14.1 Black or African American 514,698 42.3 325,264 37.4 195,055 53.8 Asian 10,187 0.8 7,080 0.8 3,228 0.9 American Indian or Alaska Native 21,838 1.8 13,316 1.5 8,776 2.4 Native Hawaiian or other Pacific Islander 8,250 0.7 2,660 0.3 5,689 1.6 Several races 64,132 5.3 40,587 4.7 24,295 6.7 Unknown 96,274 -- 77,529 -- 19,542 --

Age Under 1 25,249 1.9 2,108 0.2 23,440 6.2 1 to 5 93,735 7.2 1,788 0.2 92,941 24.5 6 to 12 79,330 6.1 2,692 0.3 77,497 20.4 13 to 17 41,357 3.2 7,666 0.8 34,128 9.0 18 to 30 285,183 21.9 206,371 22.1 82,205 21.6 31 to 50 543,199 41.8 486,098 51.9 63,527 16.7 51 to 61 191,503 14.7 188,639 20.2 5,264 1.4 62 and older 41,061 3.2 40,770 4.4 868 0.2 Unknown 12,30 -- 10,18 -- 2,176 --

Persons by Household Size 1 person 913,337 69.8 924,277 97.7 0 0.0 2 people 110,682 8.5 19,465 2.1 92,584 24.5 3 people 111,049 8.5 1,645 0.2 110,587 29.2 4 people 81,906 6.3 766 0.1 82,051 21.7 5 or more people 92,429 7.1 161 0.0 93,277 24.6 Unknown 3,515 -- 0 -- 3,548 --

Appendix D D-7 Appendix D-5: Demographic Characteristics of Sheltered Homeless Persons in Emergency Shelters, October 2007–September 2008 Persons in Emergency Shelters Individuals Persons in Families Characteristics # % # % # % Veteran (adults only) Yes 113,092 11.4 111,650 12.8 2,807 2.1 No 882,950 88.7 760,664 87.2 132,945 97.9 Unknown 74,957 -- 59,551 -- 16,205 --

Disabled (adults only) Yes 323,440 39.1 307,386 42.4 20,393 17.9 No 503,512 60.9 416,857 57.6 93,332 82.1 Unknown 244,047 -- 207,623 -- 38,23 -- Note: Counts may not add up to total because of rounding. Source: Homeless Management Information System data, October 2007–September 2008.

D-8 Appendix D

Appendix D-6: Demographic Characteristics of Sheltered Homeless Persons in Transitional Housing, October 2007–September 2008 Characteristics Persons in Transitional Housing Individuals Persons in Families # % # % # % Number of Homeless Persons 365,570 100.0 207,209 100.0 161,728 100.0

Gender of Adults 258,138 198,449 62,020 Female 122,585 47.7 72,400 36.6 51,268 82.9 Male 134,530 52.3 125,226 63.4 10,542 17.1 Unknown 1,023 -- 823 -- 210 -- Gender of Children 104,772 8,760 97,038 Female 52,260 50.0 3,666 41.9 49,147 50.7 Male 52,317 5,080 58.1 47,708 49.3 Unknown 195 -- 14 -- 183 --

Ethnicity Non–Hispanic/non–Latino 289,211 84.8 173,637 90.2 118,090 77.7 Hispanic/Latino 51,999 15.2 18,778 9.8 33,849 22.3 Unknown 24,360 -- 14,794 -- 9,788 --

Race White, non–Hispanic/non–Latino 145,806 43.6 98,278 50.9 48,837 33.8 White, Hispanic/Latino 25,818 7.7 10,130 5.3 16,109 11.1 Black or African American 131,064 39.2 69,665 36.1 62,473 43.2 Asian 2,771 0.8 1,414 0.7 1,380 1.0 American Indian or Alaska Native 7,612 2.3 4,258 2.2 3,396 2.4 Native Hawaiian or other Pacific Islander 2,800 0.8 974 0.5 1,855 1.3 Several races 18,551 5.6 8,225 4.3 10,547 7.3 Unknown 31,147 -- 14,265 -- 17,131 --

Age Under 1 11,724 3.2 1,180 0.6 10,690 6.7 1 to 5 39,955 11.0 1,845 0.9 38,475 24.2 6 to 12 33,432 9.2 652 0.3 33,081 20.8 13 to 17 19,573 5.4 5,054 2.5 14,735 9.3 18 to 30 83,205 23.0 50,197 24.3 33,633 21.2 31 to 50 127,701 35.3 102,481 49.7 26,426 16.6 51 to 61 41,393 11.4 40,229 19.5 1,592 1.0 62 and older 4,965 1.4 4,731 2.3 295 0.2 Unknown 3,622 -- 840 -- 2,802 --

Persons by Household Size 1 person 201,512 55.8 203,393 98.2 0 0.0 2 people 43,707 12.1 2,933 1.4 41,288 26.3 3 people 47,774 13.2 551 0.3 47,602 30.3 4 people 34,556 9.6 269 0.1 34,559 22.0 5 or more people 33,340 9.2 61 0.0 33,547 21.4 Unknown 4,681 -- 2 -- 4,731 --

Appendix D D-9 Appendix D-6: Demographic Characteristics of Sheltered Homeless Persons in Transitional Housing, October 2007–September 2008 Characteristics Persons in Transitional Housing Individuals Persons in Families # % # % # % Veteran (adults only) Yes 29,465 12.6 28,757 15.8 1,060 2.0 No 203,748 87.4 153,105 84.2 52,435 98.0 Unknown 24,924 -- 16,587 -- 8,526 --

Disabled (adults only) Yes 122,972 58.1 115,784 67.6 8,267 19.5 No 88,872 42.0 55,624 32.5 34,164 80.5 Unknown 46,294 -- 27,041 -- 19,588 -- Note: Counts may not add up to total because of rounding. Source: Homeless Management Information System data, October 2007–September 2008.

D-10 Appendix D

Appendix D-7: Demographic Characteristics of Sheltered Homeless Persons by Location, October 2007–September 2008 Principal Cities Suburban and Rural Areas Characteristics Number Percent Number Percent Number of Homeless Persons 1,084,335 100.0 509,459 100.0

Gender of Adults 880,382 381,010 Female 293,155 33.4 159,665 42.0 Male 584,790 66.6 220,374 58.0 Unknown 2,437 -- 971 -- Gender of Children 202,034 125,995 Female 99,136 49.2 64,533 51.6 Male 102,400 50.8 60,63 48.4 Unknown 498 -- 829 --

Ethnicity Non–Hispanic/non–Latino 813,303 77.7 426,888 86.5 Hispanic/Latino 233,369 22.3 66,689 13.5 Unknown 37,663 -- 15,881 --

Race White, non–Hispanic/non–Latino 322,604 32.8 235,634 48.4 White, Hispanic/Latino 131,768 13.4 38,324 7.8 Black or African American 447,238 45.4 166,785 34.2 Asian 8,344 0.9 3,837 0.8 American Indian or Alaska Native 16,180 1.6 11,957 2.5 Native Hawaiian or other Pacific Islander 5,789 0.6 4,589 0.9 Several races 52,425 5.3 26,340 5.4 Unknown 99,987 -- 22,082 --

Age Under 1 22,671 2.1 12,443 2.5 1 to 5 78,865 7.4 48,320 9.6 6 to 12 66,228 6.2 41,059 8.1 13 to 17 33,864 3.2 24,155 4.8 18 to 30 226,577 21.1 123,697 24.5 31 to 50 451,666 42.1 184,985 36.6 51 to 61 158,169 14.7 62,204 12.3 62 and older 34,854 3.3 8,596 1.7 Unknown 11,442 -- 4,001 --

Persons by Household Size 1 person 750,464 69.7 307,483 60.4 2 people 95,577 8.9 51,121 10.0 3 people 91,909 8.5 59,073 11.6 4 people 67,734 6.3 43,019 8.5 5 or more people 71,098 6.6 48,400 9.5 Unknown 7,553 -- 363 --

Appendix D D-11 Appendix D-7: Demographic Characteristics of Sheltered Homeless Persons by Location, October 2007–September 2008 Principal Cities Suburban and Rural Areas Characteristics Number Percent Number Percent Veteran (adults only) Yes 101,194 12.3 34,389 10.1 No 724,409 87.7 307,389 89.9 Unknown 54,779 -- 39,232 --

Disabled (adults only) Yes 245,537 38.0 175,709 52.2 No 401,331 62.0 161,229 47.9 Unknown 233,514 -- 44,072 -- Note: Counts may not add up to total because of rounding. Source: Homeless Management Information System data, October 2007–September 2008.

D-12 Appendix D

Appendix D-8: Earlier Living Situation of Persons Using Homeless Residential Services by Household Type, October 2007–September 2008 All Sheltered Adults Individual Adults Adults in Families Earlier Living Situation # % # % # % Number of Homeless Adults 1,283,272 100.0 1,092,612 100.0 203,199 100.0

Living Arrangement the Night before Program Entry Place not meant for human habitation 129,804 12.9 125,330 14.7 6,671 4.0 Emergency shelter 219,057 21.7 187,812 22.0 33,352 19.8 Transitional housing 26,824 2.7 23,232 2.7 3,774 2.2 Permanent supportive housing 3,078 0.3 2,598 0.3 507 0.3 Psychiatric facility 14,691 1.5 14,677 1.7 218 0.1 Substance abuse treatment center or detox 40,005 4.0 37,818 4.4 2,385 1.4 Hospital (nonpsychiatric) 12,629 1.3 12,397 1.5 361 0.2 Jail, prison, or juvenile detention 47,993 4.8 47,387 5.6 920 0.5 Rented housing unit 101,735 10.1 75,588 8.9 27,881 16.5 Owned housing unit 20,942 2.1 17,021 2.0 4.118 2.4 Staying with family 165,839 16.4 120,981 14.2 46,873 27.8 Staying with friends 122,005 12.1 99,231 11.6 24,481 14.5 Hotel or motel (no voucher) 33,443 3.3 24,083 2.8 9,783 5.8 Foster care home 3,897 0.4 3,821 0.5 132 0.1 Other living arrangement 68,027 6.7 60,722 7.1 7,417 4.4 Unknown 273,303 -- 239,914 -- 34,327 --

Stability of Previous Night’s Living Arrangement Stayed 1 week or less 187,886 20.6 163,851 21.3 26,803 17.3 Stayed more than 1 week, but less than a month 140,522 15.4 116,940 15.2 25,370 16.3 Stayed 1 to 3 months 196,519 21.6 163,432 21.3 35,520 22.9 Stayed more than 3 months, but less than a year 146,024 16.0 116,195 15.1 31,657 20.4 Stayed 1 year or longer 241,002 26.4 207,438 27.0 35,939 23.1 Unknown 371,319 -- 324,755 -- 47,911 --

ZIP Code of Last Permanent Address Same jurisdiction as program location 584,514 62.5 465,919 60.0 125,013 73.1 Different jurisdiction than program location 351,476 37.6 310,367 40.0 46,020 26.9 Unknown 347,281 -- 316,325 -- 32,167 -- Note: Counts may not add up to total because of rounding. Number of adults is equal to the number of adults in families and individuals, including unaccompanied youth. Source: Homeless Management Information System data, October 2007–September 2008.

Appendix D D-13

Appendix D-9: Earlier Living Situation of Persons Using Homeless Residential Services in Emergency Shelters, October 2007–September 2008 Adults in Emergency Shelters Individual Adults Adults in Families Earlier Living Situation # % # % # % Number of Homeless Adults 1,085,286 100.0 946,313 100.0 151,956 100.0

Living Arrangement the Night before Program Entry Place not meant for human habitation 117,429 14.1 114,380 15.8 5,047 4.1 Emergency shelter 164,657 19.7 151,306 20.9 15,280 12.5 Transitional housing 13,276 1.6 12,524 1.7 924 0.8 Permanent supportive housing 2,382 0.3 2,006 0.3 408 0.3 Psychiatric facility 10,512 1.3 10,443 1.4 224 0.2 Substance abuse treatment center or detox 17,560 2.1 17,175 2.4 580 0.5 Hospital (nonpsychiatric) 11,759 1.4 11,603 1.6 315 0.3 Jail, prison, or juvenile detention 36,671 4.4 36,607 5.1 577 0.5 Rented housing unit 95,417 11.4 73,489 10.2 23,354 19.1 Owned housing unit 19,262 2.3 16,130 2.2 3,363 2.8 Staying with family 138,600 16.6 102,959 14.2 37,486 30.7 Staying with friends 112,735 13.5 93,532 12.9 20,744 17.0 Hotel or motel (no voucher) 29,402 3.5 21,496 3.0 8,253 6.8 Foster care home 2,273 0.3 2,199 0.3 109 0.1 Other living arrangement 62,727 7.5 57,902 8.0 5,595 4.6 Unknown 250,623 -- 22,562 -- 29,698 --

Stability of Previous Night’s Living Arrangement Stayed 1 week or less 175,380 23.1 153,611 23.5 24,191 20.8 Stayed more than 1 week, but less than a month 108,363 14.3 90,369 13.9 19,522 16.8 Stayed 1 to 3 months 149,836 19.8 129,855 19.9 22,084 19.0 Stayed more than 3 months, but less than a year 112,757 14.9 91,981 14.1 22,291 19.2 Stayed 1 year or longer 211,958 28.0 186,832 28.6 28,285 24.3 Unknown 326,992 -- 293,665 -- 35,583 --

ZIP Code of Last Permanent Address Same jurisdiction as program location 489,234 61.0 400,306 58.7 95,468 72.9 Different jurisdiction than program location 313,026 39.0 281,762 41.3 35,557 27.1 Unknown 283,026 -- 264,245 -- 20,931 -- Note: Counts may not add up to total because of rounding. Number of adults is equal to the number of adults in families and individuals, including unaccompanied youth Source: Homeless Management Information System data, October 2007–September 2008.

D-14 Appendix D

Appendix D-10: Earlier Living Situation of Persons Using Homeless Residential Services in Transitional Housing, October 2007–September 2008 Earlier Living Situation All Adults in Transitional Housing Individual Adults Adults in Families # % # % # % Number of Homeless Adults 266,713 100.0 207,209 100.0 62,020 100.0

Living Arrangement the Night before Program Entry Place not meant for human habitation 21,627 9.3 19,806 11.1 2,062 3.7 Emergency shelter 66,338 28.6 47,069 26.3 19,929 35.7 Transitional housing 15,249 6.6 12,293 6.9 3,102 5.6 Permanent supportive housing 880 0.4 761 0.4 120 0.2 Psychiatric facility 4,998 2.2 5,005 2.8 14 0.0 Substance abuse treatment center or detox 24,866 10.7 23,134 12.9 1,931 3.5 Hospital (nonpsychiatric) 1,589 0.7 1,551 0.9 59 0.1 Jail, prison, or juvenile detention 14,092 6.1 13,840 7.7 405 0.7 Rented housing unit 12,151 5.2 6,290 3.5 5,989 10.7 Owned housing unit 2,879 1.2 1,914 1.1 994 1.8 Staying with family 35,705 15.4 24,163 13.5 11,815 21.2 Staying with friends 15,528 6.7 10,648 6.0 5,043 9.0 Hotel or motel (no voucher) 5,508 2.4 3,486 2.0 2,073 3.7 Foster care home 1,805 0.8 1,796 1.0 33 0.1 Other living arrangement 9,080 3.9 6,979 3.9 2,202 4.0 Unknown 34,416 -- 28,474 -- 6,249 --

Stability of Previous Night’s Living Arrangement Stayed 1 week or less 22,272 10.8 18,572 11.5 3,951 8.3 Stayed more than 1 week, but less than a month 40,589 19.6 33,777 21.0 7,211 15.2 Stayed 1 to 3 months 57,707 27.9 42,671 26.5 15,626 33.0 Stayed more than 3 months, but less than a year 41,851 20.3 31,198 19.4 11,055 23.3 Stayed 1 year or longer 44,202 21.4 35,019 21.7 9,566 20.2 Unknown 60,092 -- 45,972 -- 14,612 --

ZIP Code of Last Permanent Address Same jurisdiction as program location 130,130 69.5 94,837 67.9 36,560 74.1 Different jurisdiction than program location 57,060 30.5 44,874 32.1 12,757 25.9 Unknown 79,523 -- 67,498 -- 12,703 -- Note: Counts may not add up to total because of rounding. Number of adults is equal to the number of adults in families and individuals, including unaccompanied youth. Source: Homeless Management Information System data, October 2007–September 2008.

Appendix D D-15

Appendix D-11: Earlier Living Situation of Persons Using Homeless Residential Services by Location, October 2007–September 2008 Earlier Living Situation Principal Cities Suburban and Rural Areas Number Percent Number Percent Number of Homeless Adults 893,780 100.0 389,492 100.0

Living Arrangement the Night before Program Entry Place not meant for human habitation 94,432 14.0 35,371 10.6 Emergency shelter 157,620 23.4 61,437 18.3 Transitional housing 18,544 2.8 8,280 2.5 Permanent supportive housing 1,891 0.3 1,186 0.4 Psychiatric facility 8,865 1.3 5,826 1.7 Substance abuse treatment center or detox 21,783 3.2 18,222 5.4 Hospital (nonpsychiatric) 8,089 1.2 4,540 1.4 Jail, prison, or juvenile detention 30,327 4.5 17,666 5.3 Rented housing unit 72,437 10.7 29,299 8.7 Owned housing unit 12,095 1.8 8,846 2.6 Staying with family 104,946 15.6 60,893 18.2 Staying with friends 76,029 11.3 45,976 13.7 Hotel or motel (no voucher) 15,662 2.3 17,781 5.3 Foster care home 2,733 0.4 1,164 0.4 Other living arrangement 49,192 7.3 18,835 5.6 Unknown 219,135 -- 54,168 --

Stability of Previous Night’s Living Arrangement Stayed 1 week or less 107,472 17.9 80,414 25.7 Stayed more than 1 week, but less than a month 85,759 14.3 54,763 17.5 Stayed 1 to 3 months 133,313 22.2 63,206 20.2 Stayed more than 3 months, but less than a year 93,539 15.6 52,485 16.8 Stayed 1 year or longer 179,430 29.9 61,573 19.7 Unknown 294,267 -- 77,051 --

ZIP Code of Last Permanent Address Same jurisdiction as program location 404,082 64.8 180,433 57.8 Different jurisdiction than program location 219,880 35.2 131,596 42.2 Unknown 269,817 -- 77,463 -- Note: Counts may not add up to total because of rounding. Number of adults is equal to the number of adults in families and individuals, including unaccompanied youth. Source: Homeless Management Information System data, October 2007–September 2008.

D-16 Appendix D

Appendix D-12: Length of Stay in Emergency Shelters by Household Type, October 2007–September 2008: Counts Individuals Length of Stay Persons in Emergency Shelters All Male Female Persons in Families Number of Homeless Persons 1,311,023 946,121 699,564 243,815 380,320

Length of Stay 1,311,026 946,121 699,563 243,815 380,319 1 week or less 425,896 342,647 256,323 84,920 88,145 1 week to 1 month 350,960 255,118 190,723 63,659 100,159 1 to 2 months 197,580 129,736 91,588 38,087 70,131 2 to 3 months 99,071 63,419 44,309 18,977 36,808 3 to 4 months 61,862 41,585 30,635 10,942 21,064 4 to 5 months 36,603 22,741 16,918 5,465 14,342 5 to 6 months 24,345 15,467 11,536 3,923 9,213 6 to 7 months 16,854 10,292 8,024 2,264 6,789 7 to 8 months 13,087 7,761 6,002 1,757 5,514 8 to 9 months 9,381 5,295 4,008 1,283 4,220 9 to 10 months 6,934 4,195 3,161 1,032 2,841 10 to 11 months 7,175 4,174 3,372 803 3,101 11 months to 1 year 6,937 4,195 3,265 930 2,846 1 year 20,649 10,442 7,843 2,587 10,482 Unknown 33,692 29,054 21,856 7,186 4,664 Note: Counts may not add up to total because of rounding. Total homeless persons may not add up to the sum of the length-of-stay counts because length of stay was not collected for persons who could not be designated as adult or children. Source: Homeless Management Information System data, October 2007–September 2008.

Appendix D-12: Length of Stay in Emergency Shelters by Household Type, October 2007–September 2008: Percentages Individuals Length of Stay Persons in Emergency Shelters All Male Female Persons in Families Number of Homeless Persons 100.0 100.0 100.0 100.0 100.0

Length of Stay 1 week or less 33.3 37.4 37.8 35.9 23.5 1 week to 1 month 27.5 27.8 28.1 26.9 26.7 1 to 2 months 15.5 14.2 13.5 16.1 18.7 2 to 3 months 7.8 6.9 6.5 8.0 9.8 3 to 4 months 4.8 4.5 4.5 4.6 5.6 4 to 5 months 2.9 2.5 2.5 2.3 3.8 5 to 6 months 1.9 1.7 1.7 1.7 2.5 6 to 7 months 1.3 1.1 1.2 1.0 1.8 7 to 8 months 1.0 0.9 0.9 0.7 1.5 8 to 9 months 0.7 0.6 0.6 0.5 1.1 9 to 10 months 0.5 0.5 0.5 0.4 0.8 10 to 11 months 0.6 0.5 0.5 0.3 0.8 11 months to 1 year 0.5 0.5 0.5 0.4 0.8 1 year 1.6 1.1 1.2 1.1 2.8 Unknown -- -- -- -- -- Note: Counts may not add up to total because of rounding. Total homeless persons may not add up to the sum of the length-of-stay counts because length of stay was not collected for persons who could not be designated as adult or children. Source: Homeless Management Information System data, October 2007–September 2008.

Appendix D D-17

Appendix D-13: Length of Stay in Transitional Housing by Household Type, October 2007–September 2008: Counts Individuals Length of Stay Persons in Transitional Housing All Male Female Persons in Families Number of Homeless Persons 362,910 207,209 130,306 76,066 159,058

Length of Stay 362,908 207,210 130,304 76,066 159,058 1 week or less 20,270 12,551 7,610 4,905 7,940 1 week to 1 month 44,476 28,991 18,544 10,380 15,911 1 to 2 months 48,068 32,914 20,918 11,925 15,614 2 to 3 months 29,263 17,915 12,228 5,627 11,664 3 to 4 months 27,294 16,420 11,161 5,189 11,156 4 to 5 months 23,776 12,774 7,867 4,870 11,242 5 to 6 months 20,144 10,527 7,227 3,265 9,790 6 to 7 months 19,179 9,892 6,281 3,578 9,466 7 to 8 months 14,149 6,921 4,459 2,439 7,357 8 to 9 months 11,833 5,742 3,989 1,733 6,202 9 to 10 months 10,074 4,744 3,006 1,715 5,413 10 to 11 months 10,753 4,920 3,263 1,637 5,947 11 months to 1 year 10,779 5,348 2,585 2,752 5,528 1 year 63,762 33,235 17,169 15,748 30,959 Unknown 9,088 4,316 3,997 303 4,869 Note: Counts may not add up to total because of rounding. Total homeless persons may not add up to the sum of the length-of-stay counts because length of stay was not collected for persons who could not be designated as adult or children. Source: Homeless Management Information System data, October 2007–September 2008.

Appendix D-13: Length of Stay in Transitional Housing by Household Type, October 2007–September 2008: Percentages Individuals Length of Stay Persons in Transitional Housing All Male Female Persons in Families Number of Homeless Persons 100.0 100.0 100.0 100.0 100.0

Length of Stay 1 week or less 5.7 6.2 6.0 6.5 5.2 1 week to 1 month 12.6 14.3 14.7 13.7 10.3 1 to 2 months 13.6 16.2 16.6 15.7 10.1 2 to 3 months 8.3 8.8 9.7 7.4 7.6 3 to 4 months 7.7 8.1 8.8 6.9 7.2 4 to 5 months 6.7 6.3 6.2 6.4 7.3 5 to 6 months 5.7 5.2 5.7 4.3 6.4 6 to 7 months 5.4 4.9 5.0 4.7 6.1 7 to 8 months 4.0 3.4 3.5 3.2 4.8 8 to 9 months 3.3 2.8 3.2 2.3 4.0 9 to 10 months 2.9 2.3 2.4 2.3 3.5 10 to 11 months 3.0 2.4 2.6 2.2 3.9 11 months to 1 year 3.1 2.6 2.1 3.6 3.6 1 year 18.0 16.4 13.6 20.8 20.1 Unknown -- -- -- -- -- Note: Counts may not add up to total because of rounding. Total homeless persons may not add up to the sum of the length-of-stay counts because length of stay was not collected for persons who could not be designated as adult or children. Source: Homeless Management Information System data, October 2007–September 2008.