EVIDENCE

S P R I N G 2 0 2 2

MATT E R S Transforming Knowledge Into Housing

and Community Development Policy

Photo courtesy of Valley Youth House

INTERSECTIONALITY OF YOUTH HOMELESSNESS

IN THIS ISSUE

Youth Homelessness:

03

Current Findings From

14

Programs Addressing

19

The Sum of Our Parts

the Round One Evaluation

Youth Homelessness

of the Youth Homelessness

Demonstration Program

Message From PD&R Leadership

The 29th edition of Evidence Matters focuses on the intersectionality of youth home-

lessness. It sheds light on the prevalence of youth homelessness in the United States

and draws attention to the experience of homelessness by youth who are lesbian,

gay, bisexual, transgender, queer or questioning, and the range of other ways people

choose to identify (LGBTQ+) and black, indigenous, or people of color (BIPOC).

Counts of homeless youth can vary substantially based on both the method of data

collection and the definition of youth homelessness. This edition of Evidence Matters

presents research il ustrating this variation in definitions of homelessness and their

effects on the resulting counts. For example, the Annual Homeless Assessment

Report (AHAR) showed 15,763 youth sheltered on a single night in 2021. However,

a broader definition of homelessness used in a 2017 research study by Chapin Hall at the University of Chicago that included experiences of sleeping on the streets, couch surfing, and doubling up in addition to living in shelters counted as many as 4.2 mil ion homeless youth in a single year.

No matter how one counts youth homelessness, however, LGBTQ+ youth are disproportionately more likely than others to face homelessness, as are pregnant and parenting youth, BIPOC youth, and youth aging out of foster care.

Addressing the daunting challenge of reducing youth homelessness requires us to better understand the experiences of the youth. The recently completed HUD-sponsored study “Evaluation of the HUD Youth Homelessness Demonstration Program: Youth Perspectives on Homeless Housing and Services” draws on the perspectives of youth who have lived experience with homelessness to inform policy changes to support better services.

We also can learn from the interventions undertaken in response to the coronavirus epidemic. The pattern of sheltered youth changed between 2020 and 2021, possibly because more non-congregate sheltering options became available. Although overall rates of sheltered youth homelessness declined between 2020 and 2021, the AHAR showed that sheltered homelessness increased by nearly 30 percent among transgender youth and by 26 percent for non-gender-conforming youth.

The coronavirus epidemic has also provided new resources for addressing homelessness. Through the American Rescue Plan, HUD provided communities with historic levels of assistance, including nearly 70,000 vouchers through the Emergency Housing Voucher program and $5 billion in grants through the HOME–American Rescue Plan program.

Along with these resources, the Biden-Harris administration, using evidence-based policies for addressing homelessness as guideposts to support a well-coordinated use of American Rescue Plan and Coronavirus Aid, Relief, and Economic Security Act resources, launched the House America initiative in 2021. House America is a national call to action to Sample text.

mayors, county leaders, governors, and Tribal Leaders to set and achieve two specific goals by the end of 2022: place a significant number of people experiencing homelessness into permanent housing and develop thousands of new units of permanent rental housing to address homelessness. As of this writing, 87 state and local leaders nationwide — from 1 Sample footnote

California to Maine and from Port Angeles, Washington, to Puerto Rico — have answered this call. Collectively, these communities contain 45 percent of the nation’s homeless population. House America communities are demonstrating the leadership and ingenuity needed to address homelessness: rehousing an unprecedented number of people, acquiring and converting hotels into housing, resolving homeless encampments using the Housing First approach, and expanding inventories of permanent supportive housing.

These resources, local innovation, and continuing to listen to the needs of homeless youth are important parts of reducing the number of homeless youth and the length of time they are homeless.

— Todd M. Richardson, General Deputy Assistant Secretary for Policy Development and Research 2

Editor’s Note

This issue of Evidence Matters discusses the intersectional aspects of youth homelessness. In this issue, you will learn about the prevalence of youth homelessness in the United States and its impact on youth who identify as lesbian, gay, bisexual, transgender, queer or questioning, and the range of other ways people choose to identify (LGBTQ+) and black, indigenous, and people of color (BIPOC).

The lead article, “Youth Homelessness: The Sum of Our Parts,” reviews youth homelessness in the United States, including a definition of youth homelessness, its prevalence and demographics, its causes and consequences, and its intersectional nature. The article also discusses policies aimed at preventing and alleviating youth homelessness.

The Research Spotlight article, “Current Findings from the Round One Evaluation of the Youth Homelessness Demonstration Program,” summarizes recent HUD-sponsored research in youth homelessness and previews forthcoming research on the topic.

The In Practice article, “Programs Addressing Youth Homelessness,” highlights several organizations across the United States that are addressing youth homelessness in their communities. This article offers insight into program operations, types of services provided, and the outcomes of participants in these programs.

We hope that the articles in this issue of Evidence Matters will offer readers greater insight into the intersectionality of youth

homelessness in the United States. We welcome feedback at www.huduser.gov/forums.

— Sean Martin, Editor Youth Homelessness:

HIGHLIGHTS

ture

The Sum of Our Parts

n According to research by Chapin

fea

Hall at the University of Chicago, as

many as 4.2 million U.S. youth aged

According to the groundbreaking and youth aging out of the foster care 13 to 25 experience homelessness each year.

Voices of Youth Count survey by

system are disproportionately likely to

Chapin Hall at the University of Chicago,

face certain challenges.2 Youth experi-

n Causes, experiences, and conse-

as many as 4.2 million U.S. youth — 1

encing homelessness who identify with

quences of youth homelessness are

in 10 young adults aged 18 to 25 and

one or more subpopulations experience

varied and can be better understood

through a lens of intersectionality

at least 1 in 30 adolescent minors aged

a distinct combination of barriers, chal-

— examining how these factors are

13 to 17 — experience some degree of

lenges, and risks that service providers

shaped by different and intersecting

homelessness or deep housing inse-

need to acknowledge to best address

identities.

curity each year, including spending

their homelessness. This article reviews

time on the streets or in shelters, couch

youth homelessness in the United

n Incorporating an intersectional

framework into policy design and

surfing, and doubling up.1 The causes,

States and explores how an intersec-

practice can lead to programs and

consequences, and experiences of

tional framework that acknowledges the

interventions for youth experiencing

homelessness among youth vary widely

complex interplay of social categories

homelessness that meet the full com-

based on a number of factors, includ-

of identity, discrimination, and systems

plexity and nuances of their needs.

ing their characteristics and identities

of oppression that shape the experiences

as well as their intersections. Although

of homeless youth can inform more

no two experiences of homelessness are

effective responses.

differently. For the sake of consistency

exactly the same, youth who identify

and clarity, unless otherwise noted, this

as lesbian, gay, bisexual, transgender,

Defining Youth

article will use the definitions outlined

queer or questioning, and the range of

Homelessness

in HUD’s Annual Homelessness Assess-

other ways people choose to identify

Different organizations — and even

ment Report (AHAR). AHAR defines

(LGBTQ+); youth who are pregnant

different federal agencies — define

the experience of homelessness as

or parenting; African-American youth;

and categorize youth homelessness

“lacking a fixed, regular, and adequate

3

Photo courtesy of The Night Ministry

HUD’s Foster Youth to Independence program provides vouchers to youth exiting foster care, a population at high risk of experiencing homelessness.

nighttime residence.”3 The report

by their parent or guardian during

according to others’ definitions. The

categorizes individuals who stay in

their episode of homelessness, and who

shelters or emergency housing where

emergency shelters (facilities desig-

are under the age of 18,” and “unac-

youth experiencing homelessness may

nated as temporary shelter for people

companied homeless youth (18–24)” as

stay can range from large congregate

experiencing homelessness) or safe

“people in households without children

areas to smaller rooms to hotels (with

havens (projects that provide temporary

who are not part of a family with chil-

the help of vouchers).

shelter and services for hard-to-serve

dren or accompanied by their parent or

individuals) or who are in transitional

accompanied by their parent or guardian

Prevalence and

housing programs as experiencing

during their episode of homelessness, and

Demographics

sheltered homelessness. The report

who are between the ages of 18 and 24.” There are many challenges to accurately

classifies people as experiencing

A special category of youth experiencing

counting the size and demographics of

unsheltered homelessness if their

homelessness is parenting youth —

the population experiencing homeless-

primary nighttime location is “a public

people under age 25 who are parents or

ness, including youth. Point-in-Time

or private place not designated for, or

guardians of one or more children who

(PIT) counts — estimates conducted by

ordinarily used as, a regular sleeping

are sleeping in the same place as that

local Continuums of Care on one night

accommodation for people,” such as

parent or guardian.5

in the last week of January each year —

a vehicle, park, or street.4

provide a useful, if imperfect, measure

Although these definitions delineate

of the prevalence of homelessness. PIT

AHAR divides youth into two catego-

meaningful distinctions and corre-

counts can miss less visible forms of

ries: those under age 18 and those aged

spond with the prevalence counts cited

homelessness, contributing to a lack of

18 to 24. Using these definitions of

below, they cannot capture the entire

credible and reliable data for tracking

homelessness and youth, AHAR defines

spectrum of experiences. Other forms

unsheltered youth experiencing home-

“unaccompanied homeless youth

of housing instability, such as couch

lessness.6 This article will cite information

(under 18)” as “people in households

surfing, are not included in AHAR’s

on the prevalence and demographics of

with only children who are not part of

definitions of homelessness, although

youth experiencing homelessness in the

a family with children or accompanied

they are classified as homelessness

categories designated in the AHAR PIT

4

counts as well as Chapin Hall’s Voices of

between age 3 and 12th grade were

experiencing homelessness to identify

Youth Count survey and other studies.

doubled up at some point; 105,574

as a race other than White or African-

were in hotels or motels; 102,527 were

American (17% and 12%, respectively).

The 2020 PIT count estimated that the

unsheltered; and 182,659 were in shel-

Thirty-nine percent of unaccompanied

total population of unaccompanied

ters, transitional housing, or awaiting

youth experiencing homelessness were

youth in the United States was 34,210,

foster care placement.10

women or girls. Although rural and

slightly more than 6 percent of the

nonrural areas show similar rates of

total number of people experiencing

Using a similarly broad definition of

youth homelessness, youth experiences

homelessness. The number of unaccom-

homelessness, including couch surfing

in each context differ. (See “Rural Youth

panied youth experiencing homelessness

and doubling up, Chapin Hall research-

Homelessness,” p. 9.)15

has declined 11 percent nationally since

ers found that over a 12-month period,

2017, the first year that this population

4.3 percent of households with 13- to

Causes of Youth

was enumerated in the PIT count; this

17-year-olds and 12.5 percent of house-

Homelessness

figure includes a 7 percent decline

holds with 18- to-25-year-olds reported

The causes of youth homelessness

in the number of those sheltered and

experiencing homelessness.11 Nation-

include those common for many

a 14 percent decline in the number

ally, these figures suggest that at least

other households — a lack of afford-

of those unsheltered. Nine out of 10

700,000 13- to 17-year-olds and more

able housing, eviction, income loss or

unaccompanied homeless youth identi-

than 3.5 million 18- to 25-year-olds

instability, poverty, and unexpected or

fied in January 2020, or 30,821 people,

experienced homelessness in the year

significant economic shocks. Systemic

were between the ages of 18 and 24,

before the survey.12

discrimination and disparate impacts

and 3,389 were under age 18. Slightly

in each of these areas based on race,

more than half of unaccompanied

Various studies have found that youth

sexual orientation, gender, or other

homeless youth were unsheltered,

and children in families experience a

status contribute to disparities in the

and 7,335 youth were experiencing

range of durations of homelessness,

incidence of homelessness. For example,

homelessness as parents, with at least

from bridged runs (in which a youth

African-American and Latino renters

one child under the age of 18.7 Many

leaves out-of-home foster care for 7 or

(especially women) and families with

communities did not conduct an un-

fewer days before returning) to stretches

children are at greater risk of eviction

sheltered count in 2021 because of the

of homelessness of a year or longer.

than their peers, which, in turn, can

COVID-19 pandemic. The 2021 PIT

A small-sample 2009 survey found an

lead to homelessness.16 According to a

count found 15,763 sheltered unac-

average of 26 months of homelessness

national survey, 23 percent of transgen-

companied youth, down from 17,271 in

for youth living on the streets; another

der individuals experience some type of

2020. Ninety-two percent of sheltered

survey with a larger but still modest

housing discrimination, and 5 percent

unaccompanied youth were between

sample size found that youth aged 18

experienced eviction because of their

the ages of 18 and 24.8

to 21 had been homeless for a cumula-

gender identity or expression, con-

tive average of 16.4 months.13

tributing to housing insecurity. These

In 2018, instead of conducting the an-

systemic disparities result in a high risk

nual PIT count, HUD used a different

Some researchers suspect that youth

of homelessness among this popula-

methodology to estimate youth home-

homelessness increased during the

tion; nearly one out of three transgender

lessness: the Longitudinal Systems

COVID-19 pandemic, which likely left

individuals surveyed had experienced

Analysis, which uses data that com-

youth experiencing homelessness under-

homelessness at some point in their lives.17

munities report to HUD through their

counted as well as separated from the

Homeless Management Information

supports and services that they would

Additional common causes of home-

Systems. This method found that an

normally receive at school.14

lessness among unaccompanied youth

estimated 113,330 unaccompanied youth

include intrafamily conflict, domestic

aged 25 and younger used a shelter,

Unaccompanied youth present differently

violence, unsafe or unstable home

transitional housing program, or safe

than the general homeless population

environments, substance abuse, mental

haven at some point between Septem-

does; unaccompanied homeless youth

illness, family financial difficulties,

ber 30, 2017, and September 30, 2018.9

are less likely to be White and more

rejection because of their LGBTQ+

The 2018 AHAR also reported data

likely to be female than members of the

identity, and rejection because of

from state educational agencies whose

general homeless population. Ninety

pregnancy.18 Research suggests that

definition of homelessness includes

percent of unaccompanied youth are

approximately one in five youth who

those sheltered, unsheltered, in a hotel

between the ages of 18 and 24, 52

have left their homes are LGBTQ+

or motel, or doubled up because of

percent are nonwhite, and 57 percent

youth whose families have rejected

financial hardship. During the 2017–

are male. Unaccompanied youth were

them because of their identity. Some

2018 academic year, 1,117,144 students

more likely than the overall population

LGBTQ+ youth leave home before

5

coming out for fear that they will be

Indepth interviews by Chapin Hall

away.30 In addition, negative experi-

rejected.19 Violence within or outside

with 215 youth experiencing homeless-

ences in congregate or foster care

of the home is another contributor to

ness found that many have experienced

settings can contribute to exits that

homelessness among LGBTQ+ youth,

trauma, including one in three having

result in homelessness. For example,

who may need to flee dangerous situ-

experienced the loss of a parent or

transgender youth may be forced to

ations. One study found that nearly

caregiver before the age of 25. Nearly

use facilities, clothing, or hygiene

one-third of LGBTQ+ youth experiencing

half of the interviewees had spent time

products counter to their gender

homelessness have also experienced

in juvenile detention, jail, or prison;

identity despite federal antidiscrimina-

physical, emotional, or sexual abuse in

nearly 30 percent had been in foster

tion protections.31 LGBTQ+ youth are

their homes.20

care; and 17 percent had spent time

more likely than their peers to experi-

in both the justice and child welfare

ence the instability of moving from

Some researchers, however, caution

systems.27 The 100,000 youth exiting

one foster care placement to another,

against the oversimplified notion that

the juvenile justice and 25,000 youth

often at the request of the host family,

these youth were ejected from their

aging out of the foster care system each

and are more likely to run away from

homes immediately after coming out.

year are at high risk of experiencing

a placement.32

The family tensions that drive these

homelessness. Research suggests that

youth from their homes may concern

more than a quarter of former foster

Transgender and gender nonconforming

issues other than gender identity

children become homeless within 2

individuals who seek shelter continue to

or sexual orientation and may have

to 4 years of leaving the system, and

face barriers and challenges that exac-

simmered over time rather than be a

half of youth leaving the foster care

erbate housing insecurity. Although

sudden reaction to coming out.21 Trans-

and juvenile justice systems experience

not exclusive to youth, a national survey

gender and gender nonconforming

homelessness within 6 months because

of transgender individuals who had

individuals whose families reject them

of a lack of support. Most youth exiting

experienced homelessness in the past

are more than twice as likely to experi-

the juvenile justice system have had no

year found that 6 percent were denied

ence homelessness than those whose

discharge planning for stable housing

access to a shelter, 9 percent were

families accepted them.22 Transgender

and no services to address the trauma

thrown out of a shelter, 44 percent

individuals who had been mistreated

associated with detention. Involvement

decided to leave in response to poor

in school or lost employment were also

with the juvenile justice system can also

treatment or unsafe conditions, 25

more likely to experience homelessness

entail financial costs for families and

percent presented as the wrong gender

than those who had not.23 Domestic

endanger a family’s public housing.28

to feel safer, 14 percent said they were

violence perpetrated against transgen-

forced to dress as the wrong gender to

der individuals increases the likelihood

LGBTQ+ youth and youth of color are

stay, 49 percent reported verbal harass-

of homelessness among survivors by a

overrepresented in child welfare systems

ment, 19 percent reported physical

factor of four.24 Youth also may become

compared with their non-LGBTQ+

abuse, and 17 percent reported being

homeless when fleeing shelters or

and White peers, respectively.29 An

sexually assaulted. In all, 70 percent

of respondents who were experiencing

homelessness reported having a nega-

tive experience at a shelter, and 26

percent said that they did not seek

Research suggests that more than a

shelter to avoid such experiences.33

quarter of former foster children become

Whatever the precise cause, several

homeless within 2 to 4 years of leaving

characteristics, including identification

with subpopulations that are marginal-

the system.

ized, are associated with an increased

risk of homelessness. Parenting youth;

youth who identify as African-American,

congregate care settings that feel too

analysis of data from 21 state child

Latino, and/or LGBTQ+; and youth

restrictive, unsafe, or unsanitary, or when

welfare systems found that 13 percent

who have not completed high school

they are aging out of the foster care

of youth aged 13 to 17 exited their

have a disproportionately higher risk

system or exiting the juvenile justice sys-

first stay in out-of-home care by run-

of homelessness. Unaccompanied

tem without securing stable housing.25

ning away, resulting in various spans

youth experiencing homelessness are

Immigration status could also prevent

of homelessness. African-American

slightly more likely than those in the

youth from accessing public services

and Hispanic youth were more likely

general homeless population to identify

needed to prevent homelessness.26

than White youth to exit by running

as African-American (35% and 34%,

6

Photo courtesy of Valley Youth House

HUD’s Youth Homelessness Demonstration Program awards funding to communities to support rapid rehousing, permanent supportive housing, and other housing supports.

respectively). One-quarter of unaccompa-

LGBTQ+ youth were 2.2 times more

transgender women, 35 percent for

nied homeless youth were Hispanic or

likely to experience homelessness

Latina transgender women, 51 per-

Latino compared with 20 percent of all

than their straight and cisgendered

cent for multiracial transgender women,

homeless individuals. Multiracial youth

peers.36 A Chapin Hall study found

and 49 percent for Middle Eastern

accounted for 11 percent of unac-

that youth who are both LGBTQ+

transgender women.38

companied homeless youth compared

and African-American or multiracial

with 6 percent of all homeless individuals. reported the highest rates of home-

Consequences

Transgender youth or youth who do not

lessness.37

The experience of homelessness has

identify as male, female, or transgender

far-reaching effects on youth. Some of

accounted for 4 percent of the unac-

In a national survey, 0.53 percent of

the proximate causes of homelessness,

companied youth population compared

transgender respondents reported

such as substance use, sexual abuse,

with 1 percent of the general homeless

that they were homeless — a rate three

mental health disorders, and poverty,

population.34

times that of the overall U.S. popula-

may also be consequences of (or wors-

tion. Transgender women of color were

ened by) the experience of homelessness

LGBTQ+ youth are disproportionately

disproportionately represented among

itself. Youth homelessness can also cause

represented among youth experiencing

those who had experienced home-

food insecurity, negatively affect one’s

homelessness (they make up approxi-

lessness in the past year. Nearly one

education, and increase the risk of

mately 5 to 10 percent of the general

in three transgender individuals had

becoming a victim of violence, among

population but 20 to 40 percent of the

experienced homelessness at some

other outcomes.39

population of youth experiencing home-

point in their lives, but among those

lessness) even as some researchers suggest

with intersecting marginalized identities,

Research suggests that youth expe-

that LGBTQ+ youth are undercounted

the rates were higher: 59 percent for

riencing homelessness, even those

among the population experiencing

American Indian transgender women,

in shelters, are likely to experience

homelessness.35 A 2019 study found that

51 percent for African-American

food insecurity and not meet daily

7

recommended dietary levels of iron,

that create overlapping systems of

homeless services infrastructure may not

magnesium, zinc, or vitamins. Limited

discrimination or disadvantage.47

be designed to meet the special needs of

research also suggests that food con-

The dynamic interplay of identities,

pregnant and parenting youth. Among

sumption associated with homelessness

characteristics, and oppression and

other challenges, parents may struggle

can lead to obesity.40

exclusion produce distinctive experi-

to maintain relationships with each

ences of marginalization that cannot be

another while one or both are receiving

Studies indicate that unaccompanied

reduced to that of any single identity

services.53 Homelessness itself can become

youth are more likely than their peers

or a simple aggregation of identities.

an imputed identity and a basis for stig-

to contract sexually transmitted diseases

Crenshaw coined the term “intersec-

matization and discrimination, possibly

and are at high risk of pregnancy.41

tional equity,” which emphasizes the

intersecting with other identities and

Youth experiencing homelessness may

need to understand the complexity of

compounding challenges.54

engage in selling or trading drugs or

intersectional inequity and address it

sex, which also exposes them to the

accordingly with tailored responses.48

University of California, Riverside

risk of violence and arrest.42 Thirty

As Fraser et al. put it, “Intersectional-

professor Brandon Robinson explained

percent of LGBTQ+ youth come in

ity encourages us to consider how

that minority stress — prejudice and

contact with the juvenile justice system,

upstream social determinants (such as

discrimination against minority groups

a rate higher than that of their non-

racism, sexism, classism, transphobia,

that induces stress — contributes to

LGBTQ+ peers.43 Fighting in school

and queerphobia) form interlocking

mental health challenges among

— often related to bullying — and

systems of oppression which shape the

LGBTQ+ youth with intersecting

running away or skipping school are

experience of people with multidimen-

minority identities and can even lead

common reasons for LGBTQ+ youth

sional identities.”49

to pathways into homelessness. These

to be referred to the justice system.44

stresses can come from both inside and

The concept of intersectionality can

outside the home, particularly at youth-

Youth experiencing homelessness have

be applied to all HUD program partic-

serving institutions such as schools.

a higher incidence of mental health

ipants, including youth experiencing

Youth may respond to these stresses

disorders than their housed peers.

homelessness. Intersecting identities,

by escaping to the streets, but these

These disorders include disruptive

categories, and oppressions lead to differ-

stresses are likely to continue as these

behavior, social phobia, and depression.

ing experiences of marginalization and

youth navigate the streets, services,

Homelessness also contributes to

disempowerment.50 In a study of adult

and shelters.55 Robinson argued that

educational challenges such as absen-

populations, Verissimo et al. found that

familiar explanations of causes of

teeism, disruptive school mobility, and

“individuals who experience discrimina-

homelessness that focus on coming

a lack of access to special education

tion based on multiple minority statuses

out and family rejection miss the

evaluations and services, which, in turn,

are also more likely to report experienc-

reality of larger structural factors.

result in lower math and reading scores

ing homelessness, consistent with an

A 2019 report from True Colors

and high school graduation rates than

intersectional approach to understand-

United and the National LGBTQ Task

those of their housed peers. Compared

ing multiple forms of discrimination.”51

Force similarly advocated for greater

with their housed peers, transgender

Although few statistical studies document

nuance in understanding the challenges

individuals (including adults) who

the percentage of youth experiencing

that contribute to and shape youth

experienced homelessness were four

homelessness who are both LGBTQ+

homelessness, including immigration,

times more likely to engage in sex work,

and a member of a racial minority group,

forced migration, and systemic racism,

two and a half times more likely to be

LGBTQ+ youth of color, like their adult

among others. Jama Shelton wrote

incarcerated, and more likely to be HIV

counterparts, face racial discrimination, that LGBTQ+ youth narratives that

positive and to have attempted suicide.45

higher rates of prostitution, and a higher focus narrowly on family rejection or

Youth experiencing homelessness are

risk of contracting sexually transmitted

victimization can lead stakeholders to

also at heightened risk of violence: a

diseases and mental illness. In certain

emphasize solutions (such as family

2011 study reported that 22 percent

contexts, they may experience emotional

reunification) that do not adequately

of transgender individuals experiencing

isolation and depression related to con-

meet the needs of young people.56

homelessness were assaulted in shelters.46

flicts among their intersecting identities.52

In a 2018 study of the experiences of

Intersectionality and

Another subpopulation of youth ex-

LGBTQ+ youth in seven cities, Shelton

Youth Homelessness

periencing homelessness that faces

et al. found differences within groups

Originating in the work of Kimberlé

unique risks and challenges is pregnant

based on intersecting identities. In

Crenshaw, the concept of intersectionality

and parenting youth. Being unable to

this study, White and Latino LGBTQ+

refers to the interconnection or inter-

provide a safe place for one’s children to

youth were more likely than their

section of two or more social categories

live can be stressful, even traumatic. The

CONTINUED ON PAGE 10

8

Rural Youth Homelessness

Some estimates show that youth homelessness is as prevalent — at the same rate although fewer in absolute numbers — in rural communities (as defined by the U.S. Census Bureau) as it is in nonrural communities, but the experience of homelessness in rural areas is different. Homelessness in rural areas tends to be less visible than in nonrural areas, with youth in rural areas being half as likely as those in nonrural areas to stay in a shelter or transitional housing and more likely to be couch surfing, staying with others, or sleeping in cars or outside. Because of this relative lack of visibility, youth experiencing homelessness in rural areas may be undercounted. Most youth experiencing homelessness in rural areas are White, but rural African-American, Hispanic, and American Indian youth experience homelessness at disproportionate rates.1

Rural communities may offer fewer opportunities for young people to earn an income to pay for housing than do urban areas. In addition, rural economies might be heavily tied to relatively few industries or employers, meaning that an economic downturn in one sector can have widespread impacts. Substance abuse, particularly opioid abuse, in rural areas also contributes to eroding financial security and resources, leading to homelessness.2

Services in rural areas, if available at all, tend to be few and far between because of “limited service infrastructure, greater remoteness, widely dispersed populations, and the unique economic, political, and social realities of rural communities.”3 Youth in rural areas tend to be more disconnected from education and employment than are youth experiencing homelessness in nonrural areas.4 The lack of services in many rural areas extends to housing resources such as permanent supportive housing, rapid rehousing, and emergency shelters. Lack of services can cause outmigration, but perhaps less than researchers previously thought, because some people adapt to the lack of formal services and rely on other supports.5 Transportation and technology barriers keep youth from accessing the supports they need, and they are more likely to rely on informal supports through their social networks.6

HUD’s Youth Homelessness Demonstration Program requires that some amount of grants go to rural communities that can support dispersed drop-in centers, roving outreach, service navigators, and cross-agency partnerships (including schools). Youth-serving organizations with a broad focus often end up being the only place of service for youth experiencing homelessness.7 Brott et al. suggested that training for counselors and social workers “be intentionally disseminated within rural communities, thereby providing rural practitioners with a professional network (often available to urban practitioners) to access information, support, best-practices, and resources.”8

Taking an intersectional approach to rural youth homelessness, specific subpopulations will have differing experiences and need differing supports. American Indian and Alaska Native youth are twice as likely as other youth to experience homelessness, and although most American Indian and Alaska Native youth experiencing homelessness are not in rural counties, those who are face challenges unique to rural areas.9 Rural youth participating in focus groups reported experiencing racism when interacting with law enforcement, education, and child welfare systems, and LGBTQ+ youth struggled to find welcoming and affirming service providers.10 Culturally responsive policies and practices are needed to meet the needs of American Indian and Alaska Native youth, youth of color, and LGBTQ+ youth.11

1 Matthew Morton, Amy Dworsky, Gina Miranda Samuels, and Sonali Patel. 2018. “Missed Opportunities: Youth Homelessness in Rural America,” Chapin Hall at the

University of Chicago, 1; 7; 8.

2 Ibid., 9.

3 Morton et al., 3.

4 Ibid.; Erin D. Carreon, Jonathan Brodie, and Matthew H. Morton. 2020. “Challenges & Opportunities in Addressing Rural Youth Homelessness: Stakeholder Focus Group Findings,” Chapin Hall at the University of Chicago, vi.

5 Andrew Sullivan and Kotomi Yokokura. 2022. “Exploring Unsheltered Homelessness, Migration, and Shelter Access in Kentucky,” Cityscape: A Journal of Policy Development and Research 24:1.

6 Carreon et al.

7 Morton et al., 8; 12.

8 Holly Brott, Mariah Kornbluh, Gary Incaudo, Lindsay Banks, and Jessica Reece. 2019. “Placing a Spotlight on Rural Homelessness: Identifying the Barriers and Facilitators to Successfully Supporting Homeless Families within Rural Communities,” Journal of Poverty 23:3, 196–7.

9 Morton et al., 13–4.

10 Carreon et al., vii.

11 Morton et al., 13–4.

9

Photo courtesy of Valley Youth House

The Youth Homelessness Demonstration Program includes Youth Action Boards to ensure that youth have a voice in the programs and policies that affect them.

CONTINUED FROM PAGE 8

African-American peers to become

An Intersectional Approach heteronormative perspective is often

homeless because they were unable to

to Policy and Practice

traumatizing and alienating.59

pay rent. Bisexual Latino youth experi-

An analysis focused on racial identity

encing homelessness were more likely

or gender identity or sexuality alone

Intersectional equity calls for targeted

to report having been homeless for

would fail to identify these disparate

and tailored approaches to serve

more than 2 years, and bisexual

experiences based on the intersections

those whose experience of homeless-

African-American youth were more

of identities. Incorporating an intersec-

ness is affected by interconnected

likely to report being homeless for less

tional framework provides the insights

sources of oppression. Adopting

than 6 months compared to other

necessary to design programs and

such approaches requires changes

bisexual youth. African-American

interventions for youth experiencing

to programming, staff training, and,

LGBTQ+ youth reported higher

homelessness that meet the full com-

Page argued, existing laws such as the

incidences of couch surfing than did

plexity and nuance of their needs.

Runaway and Homeless Youth Act.60

their White and Latino peers, and

“If we truly want to offer comprehen-

White LGBTQ+ youth reported higher

Many existing programs may not have

sive services, there needs to be honest

incidences of staying outside or sleeping

services appropriately targeted to, or

recognition that discrimination and

on public transportation than did their

personnel specifically trained for, the

oppression are underlying causes

African-American and Latino peers.

unique circumstances and challenges

of homelessness,” said Angie Veris-

African-American and Latino youth

that youth face in their intersecting

simo, professor at California State

reported a higher incidence of racial

identities.58 Casey Trupin, director of

University, San Bernardino. “This

discrimination than did their White

youth homelessness strategy at the

will put us on a path that will allow

peers. White transgender youth were

Raikes Foundation, pointed out that,

services to also address these under-

more likely than their African-American

for many youth who are nonwhite

lying causes.”61 Robinson suggested

or Latino peers to report discrimination

or not heterosexual, engaging with

creating culturally specific program-

because of their sexual orientation.57

systems that were designed from a White,

ming for different subpopulations,

10

such as LGBTQ+ youth of color, that

to their needs.65 Some YHDP awardees

Youth to Independence (FYI) initia-

responds to their stated needs.62

have host homes for youth that are des-

tive. Youth leaving foster care who

ignated specifically for LGBTQ+ youth,

are at risk of homelessness (as well as

Training might especially be needed for

and others have identified the lack of

families engaged with the child welfare

staff serving LGBTQ+ youth. Kroehle

housing options for specific subpopula-

system) are eligible to receive vouchers

outlined some of the essential steps

tions, including LGBTQ+ youth, pregnant

through FUP. However, only 13 percent

involved in creating inclusive programs

and parenting youth, youth aging out

of public housing agencies (PHAs)

that provide “safe and affirming care”

of foster care, and youth exiting the

participate in FUP, and only 5 percent

for LGBTQ+ youth, including self-

juvenile justice system, as service gaps

of FUP participants are former foster

awareness and education for providers

that need to be filled.66

youth. More than 50 PHAs were ap-

and respect for youth voices, names,

proved to participate in the FUP Youth

pronouns, and confidentiality. Providers

Efforts to incorporate youth voices, says

and Family Self-Sufficiency Program

need to offer a range of support groups

Trupin, must not tokenize youth input,

Demonstration, which pairs FUP vouch-

that bridge various differences and

and youth should be paid for their

ers with HUD’s Family Self-Sufficiency

gather those with shared experiences

time.67 Engagement that empowers

program. Beginning in 2019, the FYI

and intersectional identities. Because of

youth and pays attention to intersec-

program became available to PHAs

the high rates of trauma among youth

tions of identity and experiences can

that do not have FUP vouchers. Initially

experiencing homelessness, incorpo-

help.68 Samuels et al. observe that when

targeted to residents who were being

rating trauma-informed care can help

staff support and nurture the identity

displaced from other HUD-assisted

service providers meet the unique needs development of LGBTQ+ youth and

housing, FYI provides youth aged 18 to

of the youth they serve. Trauma, which

25 who have aged out of the foster care

often is repeated or chronic, can lead

system with housing choice vouchers

to serious mental health conditions,

for up to 36 months coupled with

Because of the

including posttraumatic stress disorder.

supportive services to promote self-

Service providers will be better able

high rates of

sufficiency. PHAs partner with public

to engage youth if they are trained to

child welfare agencies to implement

trauma among

address trauma-related symptoms and

the program.70 The Fostering Stable

challenges. Trauma-informed care

Housing Opportunities Act, enacted in

youth experiencing

may, for example, emphasize respect

December 2020, will make FUP vouchers

and create safe spaces to overcome

homelessness,

available to PHAs by request rather than

distrust from youth.63 At the administra-

through competition, extend their terms

tive level, forms, policies, personnel,

incorporating

past 36 months in certain circumstances,

spaces, and referrals to partners should

and require PHAs to make participants

trauma-informed

reflect a commitment to inclusivity;

aware of available programs and services.71

for example, spaces such as bathrooms

An understanding of the population

care can help

should not be unnecessarily gendered,

exiting the system as well as subpopula-

and the organizations to which youth

service providers tions with intersecting identities can

are referred should be inclusive in

help target youth in need of vouchers

meet the unique

every aspect.64

as well as additional supports.72

needs of the youth

HUD’s Youth Homelessness Demon-

Programs that target vouchers to popula-

stration Program (YHDP) could be a

they serve.

tions at high risk of homelessness help

resource for communities across the

make efficient use of limited resources,

United States seeking to integrate

but expanding available resources,

an intersectional framework in their

youth of color who are navigating forms

along with increasing the supply of

programmatic approach to preventing

of discrimination on multiple bases, the

affordable housing generally, promises

homelessness. YHDP awards funding

youth tend to engage more deeply.69

to reduce homelessness further. The

to communities to support housing

key insight from an intersectional lens

programs such as rapid rehousing,

Other promising points of application

is that any action to expand available

permanent supportive housing, tran-

for an intersectional approach to reduc-

resources must also ensure that youth

sitional housing, and other models.

ing the risk of homelessness among

can access those resources without fac-

Significantly, YHDP incorporates Youth

youth aging out of foster care include

ing discrimination or other barriers.

Action Boards as advisory groups to

HUD’s Family Unification Program (FUP),

ensure that youth have direct input in

FUP Youth and Family Self-Sufficiency

Ultimately, Kroehle, Robinson, Verissimo,

creating programs that are responsive

Program Demonstration, and Foster

and others argued, the recognition of the

11

role of discrimination in contributing

a commitment to the dismantling of the

by homelessness” and that no evalua-

to homelessness points to addressing

systems that contribute to and shape the

tions of interventions that implement

systems of oppression. According to

experience of youth homelessness.

an intersectional framework exist.77

Verissimo et al., “Strategies to prevent

As practitioners adopt explicitly in-

and address homelessness can be

According to Robinson, attention to

tersectional approaches, opportunities

strengthened by addressing discrimina-

intersectionality in research on youth

to research and evaluate will expand

tion that is embedded in multiple social

homelessness is growing, particularly

as well.

systems, including housing, educational,

through qualitative research. Quan-

employment, criminal justice, and

titative methods might not reach the

Conclusion

health systems.”73 The Biden adminis-

depth of multiple factors contribut-

Youth homelessness remains an urgent

tration’s emphasis on achieving equity

ing to homelessness — for example,

issue in the United States, with millions

for those “who have been historically

if surveys ask a respondent to check a

of youth experiencing some type of

underserved, marginalized, and adversely

single box on why they perceived they

homelessness and instability each year.

affected by persistent poverty and

were experiencing homelessness.76

Using an intersectional framework to

inequality” takes these systems head

Researchers could adapt quantitative

understand the complex and dynamic

on, calling through an executive order

methods to permit more nuance and

ways that multiple identities shape the

for the federal government to “recog-

report intersecting identities. With

experiences, obstacles, and systems

nize and work to redress inequities in

a few exceptions, most research on

of oppression encountered by differ-

their policies and programs that serve

LGBTQ+ youth experiencing homeless-

ent youth can help policymakers and

as barriers to equal opportunity.”74 An

ness does not break down subgroups by

practitioners tailor appropriate services

additional executive order expressly

race or other identities. A recent review

to individual clients and identify and

directs all federal agencies to enforce

of homelessness intervention evalua-

address large-scale structures that cause

prohibitions of discrimination based on

tions noted specifically that “evaluative

or worsen youth homelessness.

gender identity or sexual orientation,

evidence is further lacking on how the

including housing discrimination.75

effects of interventions vary by subpop-

1 Chapin Hall at the University of Chicago. 2017.

“Missed Opportunities: Youth Homelessness in

Together, these executive orders represent

ulations disproportionately impacted

America National Estimates,” Voices of Youth Count; Photo courtesy of Valley Youth House

When program staff support and nurture identity development and incorporate youth voices, youth tend to engage more deeply.

12

Kirsten Ray. 2021. “The Foster Youth to Independence

22 Jamie M. Grant, Lisa A. Mottet, Justin Tanis, Jack

56 Price et al., 68–9.

Program in Oregon,” Cityscape: A Journal of Policy Devel-Harrison, Jody L. Herman, and Mara Keisling. 2011.

57 Jama Shelton, Jonah DeChants, Kim Bender, Hsun-Ta

opment and Research 23:1, 293.

“Injustice at Every Turn: A Report of the National

Hsu, Diane Santa Maria, Robin Petering, Kristin Fergu-

2 Christa Price, Dehkontee Chanchan, Coco Wheeler,

Transgender Discrimination Survey,” National Center son, Sarah Narendorf, and Anamika Barman-Adhikari.

Nick Seip, and Justin Rush, eds. 2019. At the Intersec-

for Transgender Equality and National Gay and Lesbian

2018. “Homelessness and Housing Experiences among

tions: A Collaborative Resource on LGBTQ Youth

Task Force, 7.

LGBTQ Young Adults in Seven U.S. Cities,” Cityscape: A Homelessness, (2nd Edition). True Colors United and

23 Ibid., 44, 51.

Journal of Policy Development and Research 20:3.

the National LGBTQ Task Force, 14; Amy Dworski,

24 Ibid., 88.

58 Alex Abramovich and Jama Shelton, Eds. 2017. Where

Matthew Morton, and Gina Miranda Samuels. 2018.

25 Morton et al. 2018a, 62.

Am I Going to Go? Intersectional Approaches to Ending

“Missed Opportunities: Pregnant and Parenting Youth

LGBTQ2S Youth Homelessness in Canada & the U.S.

Experiencing Homelessness in America, ” Chapin Hall 26 Kathleen Ja Sook Bergquist, Hannah Nelson, Patricia

Toronto: Canadian Observatory on Homelessness Press.

at the University of Chicago.

Cook-Craig, William Sousa, Arash Ghafoori, and Melissa

59

Jacobowitz. 2018. “A review of Policies that Impact

Interview with Casey Trupin, 1 December 2021.

3 U.S. Department of Housing and Urban Development.

Homeless Youth in Southern Nevada,” UNLV College 60 Page 2017, 19.

2021. “The 2020 Annual Homeless Assessment Report

of Urban Affairs Research Brief, 6.

(AHAR) to Congress,” 2.

61 Email correspondence with Angie Verissimo, 9 January

27 Morton et al. 2018a, ix, 48.

2022.

4 Ibid., 3.

28 Linda Britton and Lisa Pilnik. 2018. “Preventing

62 Interview with Brandon Andrew Robinson, 16

5 Ibid., 2–3.

Homelessness for System-Involved Youth,” Juvenile and December 2021.

6 Matthew H. Morton, Amy Dworsky, Jennifer L. Mat-

Family Court Journal 69:1.

63 Elizabeth K. Hopper, Jeffrey Olivet, and Ellen L.

jasko, Susanna R. Curry, David Schuleter, Raúl Chávez,

29

Bassuk. “Trauma-Informed Care for Street-Involved

and Anne F. Farrell. 2018. “Prevalence and Correlates

Price et al.

Youth, ” in Sean Kidd, Natasha Slesnick, Tyler of Youth Homelessness in the United States,” Journal of

30 Morton et al. 2018a, 109.

Frederick, Jeff Karabanow, and Stephen Gaetz eds.

Adolescent Health 62, 15.

31 Price et al., 14–5.

2018. Mental Health and Addiction Interventions for

7 U.S. Department of Housing and Urban Development

32 Megan Martin, Leann Down, and Rosalynd Erney.

Youth Experiencing Homelessness: Practical Strategies for

2021, 42–4.

2016. Out of the Shadows: Supporting LGBTQ

Front-line Providers. Toronto: Canadian Observatory on

8 U.S. Department of Housing and Urban Development.

Youth in Child Welfare Through Cross-System Col-

Homelessness Press, 45–50.

2022. “The 2021 Annual Homeless Assessment Report

laboration. Washington, DC: Center for the Study

64 Price et al., 78–80.

(AHAR) to Congress, Part 1: Point-in-Time Estimates

of Social Policy. 8, 10.

65 U.S. Department of Housing and Urban Develop-

of Sheltered Homelessness,” 31.

33 James et al., 179--82.

ment. 2019. “FY 2018 (Round 3) Youth Homeless-

9 U.S. Department of Housing and Urban Development.

34 U.S. Department of Housing and Urban Develop-

ness Demonstration Program Community Selection

2020. “The 2018 Annual Homeless Assessment Report

ment 2021, 42–3; Melissa A. Kull, Matthew H. Morton,

Announcement.”

(AHAR) to Congress: Part 2: Estimates of Homeless-

Sonali Patel, Susanna Curry, and Erin Carreon. 2019.

66 Debra J. Rog, Kathryn A. Henderson, and Eleanor M.

ness in the United States,” 4-3, 4-4.

“Missed Opportunities: Education Among Youth and

Kerr. 2020. “Evaluation of the Youth Homelessness

10 Ibid., B-7, B-8.

Young Adults Experiencing Homelessness in America,”

Demonstration Program: Initial Continuums of Care

Chapin Hall at the University of Chicago, 3.

11 Matthew Morton, Amy Dworsky, Gina Miranda Samuels,

Survey, ” U.S. Department of Housing and Urban

and Sonali Patel. 2018a. “Voices Of Youth Count Com-

35 Page 2017, 19.

Development, 19, 28.

prehensive Report: Youth Homelessness In America,” 10.

36 Price et al., 4.

67 Interview with Casey Trupin.

12 Ibid., viii.

37 Chapin Hall at the University of Chicago 2017, 3.

68 Price et al., 109.

13 Kristin M. Ferguson. 2009. “Exploring Family Environ-

38 James et al., 178.

69 Gina M. Samuels, Christine Cerven, Susanna R. Curry,

ment Characteristics and Multiple Abuse Experiences

39 Brodie Fraser, Nevil Pierse, Elinor Chisholm, and Hera

and Shanatá R. Robinson. 2018. “Nothing is for

Among Homeless Youth,” Journal of Interpersonal

Cook. 2019. “LGBTIQ+ Homelessness: A Review of

free...”: Youth Logics of Engaging Resources While

Violence 24:11, 1880; Kimberley Bender, Stephanie

the Literature,” International Journal of Environmental

Unstably Housed,” Cityscape: A Journal of Policy Develop-Begun, Anne DePrince, Badlah Haffejee, and Sarah

Research and Public Health 16:15.

ment and Research 20:3.

Kaufmann. 2014. “Utilization Technology for Longi-

70

40

U.S. Department of Housing and Urban Development.

tudinal Communication with Homeless Youth,” Social

Yumiko Aratani. 2009. “Homeless Children and

“Family Unification Program” (www.hud.gov/pro-

Work in Health Care 53:9, 868, 871.

Youth: Causes and Consequences,” National Center for Children in Poverty, 6.

gram_offices/public_indian_housing/programs/hcv/

14 SchoolHouse Connection and Poverty Solutions at

family#fss). Accessed 17 January 2022; U.S. Department 41

the University of Michigan. 2020. “Lost in the Masked

Ibid.

of Housing and Urban Development. “FYI Vouchers

Shuffle & Virtual Void: Children and Youth Experi-

42 Price et al., 18–20.

for the Foster Youth to Independence Initiative” (www.

encing Homelessness Amidst the Pandemic, ” 4, 11.

43 Price et al., 18.

hud.gov/program_offices/public_indian_housing/pro-

15 U.S. Department of Housing and Urban Development

44 Ibid.

grams/hcv/fyi). Accessed 15 February 2022.

2021, 42–3.

71

45 Grant et al., 106; Aratani, 7.

Adrienne L. Fernandes-Alcantara and Maggie McCarty.

16 U.S. Department of Housing and Urban Development.

2021. “Housing for Former Foster Youth: Federal Sup-

46 James et al., 4.

2021. “Affordable Housing, Eviction, and Health,”

port, ” Congressional Research Service, 19–26.

Evidence Matters

47

Summer.

Kimberlé Crenshaw. 1989. “Demarginalizing the In-

72 Kirsten Ray. 2021. “The Foster Youth to Independence

tersection of Race and Sex: A Black Feminist Critique

17 Sandy E. James, Jody L. Herman, Susan Rankin, Mara

Program in Oregon,” Cityscape: A Journal of Policy Devel-

of Antidiscrimination Doctrine, Feminist Theory and

Keisling, Lisa Mottet, and Ma’ayan Anafi. 2016. The

opment and Research 23:1.

Antiracist Politics,” University of Chicago Legal Forum.

Report of the 2015 U.S. Transgender Survey. Washington,

73 Denisse Otiniano Verissimo et al., 10.

DC: National Center for Transgender Equality, 176.

48 Neisha McGee. 2021. “EmpowHERment Through

74

Intersectional Equity,” Independent Sector 19 March.

The White House. 2021. “Executive Order on Ad-

18 U.S. Department of Housing and Urban Development

vancing Racial Equity and Support for Underserved

2021, 131–2.

49 Fraser et al.

Communities Through the Federal Government,” 20

50

19 Michelle Page. 2017. “Forgotten Youth: Homeless

McGee.

January.

LGBT Youth of Color and the Runaway and Homeless

51 Angie Denisse Otiniano Verissimo, Nicole Henley,

75 The White House. 2021. “Executive Order on Prevent-

Youth Act,” Northwestern Journal of Law & Social Policy Gilbert C. Gee, Claudia Davis, Christine Grella. 2021.

ing and Combating Discrimination on the Basis of

12:2, 18.

“Homelessness and discrimination among US adults:

Gender Identity or Sexual Orientation,” 20 January.

20 Soon Kyu Choi, Bianca D.M. Wilson, Jama Shelton,

the role of intersectionality,” Journal of Social Distress

76 Interview with Brandon Andrew Robinson.

and Gary J. Gates. 2015. “Serving Our Youth 2015:

and Homelessness.

77 Matthew H. Morton, Shannon Kugley, Richard

The Needs and Experiences of Lesbian, Gay, Bisexual,

52 Page 2017, 19, 23.

Epstein, and Anne Farrell. 2020. “Interventions for

Transgender, and Questioning Youth Experiencing

53 Dworski et al., 2–3.

youth homelessness: A systemic review of effectiveness

Homelessness,” Los Angeles: The Williams Institute 54 Denisse Otiniano Verissimo et al., 11.

studies,” Children and Youth Services Review 116.

with True Colors Fund.

55 Brandon Andrew Robinson. 2021. “‘They peed on my

21 Matthew Morton, Gina Miranda Samuels, Amy Dwor-

shoes’: foregrounding intersectional minority stress in

sky, and Sonali Patel. 2018b. “Missed Opportunities:

understanding LGBTQ youth homelessness,” Journal

LGBTQ Youth Homelessness in America,” Chapin of LGBT Youth; Interview with Brandon Andrew Robin-Hall at the University of Chicago, 11.

son, 16 December 2021.

13

Current Findings From the Round

HIGHLIGHTS

n Family conflict and tumultuous home

One Evaluation of the Youth Home-

environments were the most common

causes of homelessness identified

spotlight

lessness Demonstration Program

by youth across all 10 Round One

ch

Continuums of Care (CoCs) in the

Youth Homelessness Demonstration

In 2012, the U.S. Interagency The Demonstration

Program (YHDP).

Council on Homelessness released

In early 2017, during the first round

resear

n Results from a national survey of

the Federal Framework to End Youth

of YHDP, HUD awarded $33 million to

CoCs show that key barriers to serv-

Homelessness, an updated roadmap

10 Continuums of Care (CoCs).2 Using

ing youth include a lack of affordable

of strategies to prevent and end youth

YHDP funds to implement coordinated

housing, limited educational and

homelessness.1 A key goal included

planning efforts, CoCs identified and

employment opportunities, and dif-

the development of coordinated local

collaborated with various local stake-

ficulty in serving minor youth under

efforts and systems tailored to the

holders, including housing providers,

age 18 because of restrictions with

needs of youth at risk of or experienc-

child welfare agencies, school districts,

signing leases and consenting to

ing homelessness. This goal included

workforce development organizations,

data sharing as well as the need for

parental consent to access services

developing more efficient methods

and juvenile justice systems. These CoCs

such as shelters or health care.

for identifying and engaging youth

also developed Youth Action Boards

and strategically aligning their needs

(YABs) composed of youth with lived

n By mid-implementation, youth in YHDP

with the most appropriate and effective

experience with homelessness that were

CoCs reported increasing awareness

resources available in their community.

tasked with leading the planning and

of and access to services such as

coordinated entry systems, case man-

HUD responded by launching the

implementation of YHDP. HUD asked

agement, and youth-specific shelters

Youth Homelessness Demonstration

selected CoCs to use these collaborations

and permanent housing assistance.

Program (YHDP), which provides

to assess the local needs and character-

resources for communities to create

istics of youth experiencing or at risk of

or improve coordinated planning and

homelessness and create a coordinated

navigate the coordinating and planning

services for this population of youth

community plan to improve the acces-

process, including developing and en-

aged 14 to 24. This article summarizes

sibility and targeting of resources. In

gaging YABs and governance structures,

published findings to date from the

addition, HUD offered YHDP CoCs

establishing new youth-focused projects

evaluation of the first round of YHDP.

technical assistance to help them

and services, collaborating with local

Continuums of Care Receiving Round One YHDP Awards

YHDP Funding

Anchorage, Alaska

$1.5 million

Austin/Travis County, Texas

$5.2 million

Cincinnati/Hamilton County, Ohio

$3.8 million

Connecticut Balance of State, Connecticut

$6.6 million

Kentucky Balance of State, Kentucky

$1.9 million

Northwest Michigan, Michigan

$1.3 million

Ohio Balance of State, Ohio

$2.2 million

San Francisco, California

$2.9 million

Seattle/King County, Washington

$5.4 million

Watsonville/Santa Cruz, California

$2.2 million

14

partners, and navigating HUD regula-

tions and policies.

The Evaluation

After selecting the first round of YHDP

CoCs, HUD contracted with Westat,

an independent research firm, to lead

a 4-year evaluation of the demonstra-

tion. The evaluation focused on three

key areas: the baseline status of the

systems in place within each selected

community that served targeted youth,

the changes to systems that improved

access to housing and services for tar-

geted youth over time, and how noted

changes affected the number and com-

position of targeted youth. To achieve

these goals, the evaluation addressed

the following research questions:

n What are the similarities and differ-

ences among the YHDP CoCs, and

how does their baseline status com-

pare with that of non-YHDP CoCs in

their services for youth experiencing

homelessness?

n How are the CoCs planning and

implementing coordinated commu-

nity responses to youth homelessness?

n What has been the role of technical

assistance in shaping the coordinated

community plan and its implemen-

tation?

n How are YHDP communities engag-

ing youth in the planning process

and in the execution of those plans?

n What strategies do youth and other

stakeholders think worked?

The gender of youth served across all 10 Round One YHDP sites was predominantly female.

n How have services and supports

for youth experiencing homeless-

3 CoCs that did not receive YHDP

the second wave was administered in

ness changed over the course of the

funding to serve as comparison sites.3

mid-2020, near the end of the Round

demonstration, and how do those

The evaluation included two rounds of

One demonstration. Westat analyzed

changes compare with communities

qualitative interviews to gather direct

Homeless Management Information

not selected for YHDP?

perspectives from local stakeholders

Systems (HMIS) data reported by

n How have the number and composition

(such as advocacy groups and phil-

YHDP CoCs and the 3 comparison

of youth experiencing homelessness

anthropic organizations) and youth

CoCs to understand the services that

who were in need of services — and

serving on the YABs. Westat conducted

the youth received and the size of

who have received services — changed focus groups to gather perspectives

the youth populations served in the

in the demonstration communities

from youth experiencing homelessness.

10 YHDP sites and the 3 comparison

that did not receive YHDP funding?

To create another basis for compari-

sites.5 A document review that included

son, Westat distributed two waves of

grant applications, community plans,

Westat used a longitudinal, multiple

web surveys to CoCs nationally.4 The

and other CoC documents helped to

comparative case study design of

first wave of surveys was administered

illuminate the YHDP planning process

the first 10 CoCs selected as part of

in early 2019, during the launch of

and provided historical context for

YHDP’s Round One sites and selected

the Round One YHDP projects, and

each of the selected CoCs.

15

Published Reports

CoCs developed their coordinated com-

q HUD technical assistance im-

and Findings

munity response, collaborations, and

proved sites’ ability to develop

To date, HUD has published three

implementation of YHDP projects).

coordinated plans, establish and

reports about the YHDP evaluation:

The report also analyzes data collected

involve YABs with planning, and

the Early Implementation Report,

from the first round of interviews and

improve sites’ ability to collect

published in March 2021; the Initial

focus groups, a document review,

data and use it in local strategic

Continuums of Care Survey, published

HMIS, and the first wave of web surveys.

planning.

in July 2021; and Youth Perspectives

Key findings from this report include

on Homeless Housing and Services,

the following:

n Status of youth homelessness service

published in April 2022. A final com-

systems:

prehensive report integrating all data

n Development of a coordinated com-

q The baseline level of development

and analysis from the study will be

munity response:

of each site shaped the early efforts

published by the end of 2022. All

q The strongest coordination across

of each site. CoCs with highly

HUD-published reports from this study

sites was with child welfare, edu-

developed youth homelessness

have been uploaded to the YHDP

cation, and behavioral health

systems and resources in place

evaluation page on HUD User, HUD’s agencies; collaborations with the

tended to use YHDP resources

research portal.6

juvenile justice and healthcare

to refine their fully implemented

systems were the least common.

systems, such as through improved

The Early Implementation Report

q Noted challenges included delays

navigation or diversion assistance.

assesses planning efforts across all sites

in receiving HUD funding and

CoCs with less developed systems

that took place during the first year of

guidelines; establishing governance

tended to focus on a more exten-

the demonstration and the sites’ base-

structures; identifying partners; and

sive range of projects, including

line status in the size and composition

obtaining buy-in from stakeholders,

improvements to their coordinated

of studied youth, services, housing, and

which was particularly challenging

entry systems, drop-in centers, and

system development (such as how the

within the large, multicounty CoCs.

outreach.7

Inclusion of youth with lived experiences of homelessness in the planning and implementation processes through Youth Action Boards was a critical component of YHDP.

16

q Of the YHDP-funded sites, all

planned to expand or create new

African-American, multiracial, and Native

rapid rehousing projects, half

planned to implement host home

American youth typically were overrep-

projects, and two planned projects

that allowed youth to move from

resented in each site, with rates ranging

transitional housing to rapid re-

from three to eight times those observed

housing. Only a few sites planned

to increase access to mainstream

in the general population.

services, and no sites planned to

increase employment projects.

n Perspectives of youth:

Michigan, San Francisco, and

Services least likely to be implement-

q Family conflict and tumultuous

Anchorage.

ed specifically for youth included

home environments were the most

q The youth served were predomi-

homelessness prevention and emer-

common causes of homelessness

nantly female. The rate of youth

gency shelter.

identified by youth. Some were

who identified as transgender or

n More than half of surveyed CoCs in-

rejected by family because of preg-

gender nonconforming across all

dicated that they have a coordinated

nancy or because they identified as

sites ranged from 0.1 to 3 percent,

entry system in place that offered

lesbian, gay, bisexual, transgender,

higher than most national averages.

multiple points of entry, used known

queer or questioning, and the range q African-American, multiracial, and

assessment tools, and served youth

of other ways people choose to iden-

Native American youth typically

who were considered homeless and

tify (LGBTQ+).

were overrepresented in each site,

fleeing domestic violence.

q Many of the youth participants in

with rates ranging from three to

n Most surveyed CoCs reported coor-

YHDP were unaware of the avail-

eight times those observed in

dinating with entities that included

ability of local resources or how to

the general population. Latino

child welfare, education, and mental

connect to these resources. Youth

youth make up approximately 15

health and substance abuse service

who were familiar with their com-

percent of the general population

providers. Coordination typically

munity’s coordinated entry system

but represented nearly half of the

involved representatives from these

indicated that the process was too

population served in Santa Cruz

entities serving as members of the

slow and burdensome.

and one-third of the population in

CoC and participating in youth home-

q The lack of affordable housing

Austin/Travis County.

lessness planning. Less common

and the high cost of housing were

coordination activities included the

noted as problems across sites,

The Initial Continuums of Care Survey

blending of funding from multiple

especially in urban areas, where

report summarizes data collected from

programs and providing services and

youth could not find jobs that paid

the first national survey of CoCs, con-

housing.

enough to support themselves or

ducted in early 2019 during the launch

n Coordination challenges identi-

rent housing.

of Round One YHDP projects. This

fied across surveyed CoCs included

q Youth recommendations included

report establishes a baseline understand-

varying definitions of homelessness,

increasing availability of and ac-

ing of the services and housing available

restrictions on how funding could

cess to youth-specific shelters and

for youth at risk of or experiencing

be spent, and the sharing of confi-

housing, improving outreach and

homelessness in CoCs nationwide. Key

dential data.

communication, and assistance with

findings from this report included the

n More than half of surveyed CoCs

employment. Youth also recom-

following:

have a strategic plan for addressing

mended that CoCs solicit input

youth homelessness. Fewer than

from youth themselves to improve

n The fully implemented system com-

half of the surveyed CoCs, however,

youth-tailored services.

ponent that was most common across

indicated that they have conducted

surveyed CoCs was a youth-targeted

youth-specific needs assessments as

n Population size and composition

coordinated entry system. Other

part of their communities’ planning

of youth:

common services for youth considered

efforts. Even fewer surveyed CoCs

q The average age of youth served

to be partially or fully implemented

included youth with lived experience

across sites was 21. Youth un-

across the surveyed CoCs were out-

with homelessness in their governing

der age 18 represented only 10

reach, case management, family and

and policymaking or have a commit-

percent of youth across sites but

natural support services, and educa-

tee that focuses specifically on youth

were most common in Northwest

tion and employment services.

housing and services. Surveyed CoCs

17

noted that the lack of accurate and

because they concerned sensitive

carrying out HUD’s Evaluation Policy,

complete data for youth at risk of or

topics such as past abuse.

which calls for the “deliberate and in-

experiencing homelessness created

n Youth across sites during baseline

tentional inclusion of the thoughts and

planning challenges.

and mid-implementation reported

perspectives of studied groups.”9

n CoCs identified several key barriers to

unfamiliarity with homelessness

serving youth, including a lack of af-

resources in their community.

YHDP has greatly expanded since its

fordable housing, limited educational

Although youth-centered outreach

initial launch in 2017. Through 5

and employment opportunities, and

was available in most communities

rounds, HUD has awarded nearly

difficulty in serving youth under age

by mid-implementation, some youth

$300 million to a total of 77 CoCs. In

18 because of restrictions with signing

continued to rely on friends, family, or

March 2022, HUD announced its sixth

leases and consenting to data sharing

non-homeless service providers (such as round of awards, offering an addi-

as well as the need for parental con-

clinics, job centers, or schools) to learn

tional $72 million to up to 25 CoCs.10

sent to access services such as shelters

about local homelessness resources.

As HUD increases its coordinated

or health care.

n Youth in the mid-implementation

efforts and services for youth while

focus groups expressed fewer con-

critically assessing the results and learn-

Finally, the Youth Perspectives Report

cerns about accessing permanent

ing directly from youth themselves, it

provides a qualitative summary of

housing, likely in part because of

further demonstrates its commitment

interviews with youth from all 10 of the

the increased resources that were

to achieving the early goals established

Round One YHDP CoCs and from the

available at that point. Difficulties

by the U.S. Interagency Council on

3 comparison CoCs. The report is

in locating affordable apartments,

Homelessness.

based on two rounds of interviews

however, forced some youth to select

— Justin Brock

conducted at baseline and at mid-

apartments with maintenance issues

Social Science Analyst, HUD

implementation — about 2 years after

or in areas considered unsafe.

the start of YHDP. The two rounds of

1 U.S. Interagency Council on Homelessness. 2013.

n By mid-implementation, youth in

“Framework to End Youth Homelessness: A Resource

interviews illustrate how the demonstra-

YHDP CoCs reported increasing

Text for Dialogue and Action.”

tion evolved over the first 2 years of

awareness of and access to services

2 CoCs are designated communities, such as a city,

implementation and further document

such as coordinated entry, case

county, or region, that function as a local network of

stakeholders and providers to serve populations who

the experiences of youth members of

management, and youth-specific

are at risk of or are experiencing homelessness.

YABs and the perspectives of youth

shelters and permanent housing

3 The three comparison CoCs selected for the study were

Sonoma County, Colorado Balance of State, and Memphis.

receiving services in these communities.8

assistance. Youth in the comparison

4 A total of 305 out of 380 CoCs nationally responded to

Key findings from this report include

CoCs reported little change in their

the web survey — a response rate of 80 percent. The

the following:

systems over time, and services mostly

Round One YHDP CoCs and the three comparison

CoCs were excluded from the survey.

remained the same.

5 HMIS collects and reports client-level data of people

n Although YAB members across all

accessing homelessness services within each CoC.

More information can be found at www.hudexchange.

sites reported being active in YHDP

Conclusion

info/programs/hmis/.

planning and early implementation,

A critical component of YHDP was the

6 U.S. Department of Housing and Urban Development.

YAB involvement by mid-implemen-

inclusion of youth with lived experience

“Youth Homelessness Demonstration Program” (www.

huduser.gov/portal/Youth-Homelessness-Demonstra-

tation varied across sites, with fewer

with homelessness in developing local

tion-Program.html). Accessed 22 April 2022.

sites maintaining active YABs.

governance structures and influencing

7 Coordinated entry is a centralized and streamlined

method for accessing homeless services within the

n By mid-implementation, aware-

local policymaking. The evaluation

community. More information about coordinated

ness of coordinated entry by youth

took the inclusion of youth a step fur-

entry can be found at www.hudexchange.info/re-

increased compared with baseline.

ther, using their direct perspectives

source/4427/coordinated-entry-policy-brief/.

8 The Youth Perspectives Report includes 25 interviews

Youth in some sites voiced discom-

to understand how the demonstration

with YAB members and more than 60 focus groups

fort when responding to questions

may have changed their lives and how

with youth experiencing homelessness.

9

asked during the coordinated entry

local services, planning, and coordina-

U.S. Department of Housing and Urban Development.

2021. “HUD Program Evaluation Policy-Policy State-

process, because they felt that either

tion efforts could better serve them.

ment,” Federal Register 86: 154.

their responses were not believed

Collectively, the demonstration and its

10 U.S. Department of Housing and Urban Development.

2022. “Youth Homelessness Demonstration Program,”

or the questions induced trauma

evaluation efforts serve as a model for

Notice of Funding Opportunity, FR-6500-N-35.

18

Programs Addressing

HIGHLIGHTS

ctice Youth Homelessness

n The Night Ministry’s housing pro-

pra

in

T

grams address the complex needs

he diverse racial, gender, and

or experiencing sex trafficking. The

of LGBTQ+, parenting, expectant,

social circumstances of youth

programs offered at these nonprofit

foster, and minority youth in a safe

experiencing homelessness require

organizations have generated positive

and inclusive atmosphere.

approaches tailored to their unique

outcomes for young people, many of

n New Avenues for Youth enables

and often complex needs. Several

whom have achieved vocational and

young people to access employment

organizations across the country are

educational goals and developed the

training and academic supports

addressing these needs by implementing

life skills needed for independent living.

in a flexible, comfortable format

evidence-based solutions to improve the

that is uniquely tailored for youth

long-term housing stability and emo-

The Night Ministry

representing several intersecting

tional well-being of youth.1 The Night

The Night Ministry began in 1976

identities.

Ministry is a Chicago-based nonprofit

through a coalition of Chicago-based

n The Night Ministry and New

that operates several housing programs

congregations and a local minister

Avenues for Youth require staff

providing outreach, shelter, health

who supported individuals experienc-

training in cultural competency, harm

care, and social supports to youth in a

ing homelessness.2 Today, The Night

reduction, and trauma-informed

safe and inclusive environment, with

Ministry serves neighborhoods through-

care to meet the needs of youth

a focus on the needs of parenting and

out the city, providing homelessness

and establish rapport.

expectant youth; racial minorities; and

programs and services that include

youth who are lesbian, gay, bisexual,

transitional housing and supportive

transgender, queer or questioning, and

services for youth and young adults

youth homelessness makes counting

the range of other ways people choose

whose experience of homelessness is

youth difficult because they often are

to identify (LGBTQ+). New Avenues for

compounded by their gender identity,

not in shelter locations where tradi-

Youth, a nonprofit based in Portland,

social background, and race.3

tional Point-in-Time (PIT) counts take

Oregon, works to prevent and mitigate

place.5 The January 2021 PIT count

youth homelessness through programs

Estimates on the number of young

tallied 213 unaccompanied youth in

that offer basic needs, housing, coun-

people who are experiencing homeless-

Chicago; of these, approximately 89

seling, education, skills development,

ness vary based on survey method and

percent were living in shelters and the

and employment for youth who are

agencies’ definition of homelessness.4

remaining 11 percent were unsheltered

aging out of foster care, LGBTQ+,

The hidden and transitory nature of

outdoors.6 Using the Chicago Homeless

The Night Ministry

Photo courtesy of

The transitional housing and supportive services offered at The Night Ministry help youth develop the life skills needed to live independently.

19

Photo courtesy of The Night Ministry

Establishing rapport is a vital component of engaging youth during meetings with case managers and program staff.

Management Information System and the

4 identified as LGBTQ+, and 3 were

accommodations for the LGBTQ+ com-

American Community Survey, research-

foster system alumni.10

munity by allowing youth more flexibility

ers at the Chicago Coalition for the

to disclose their gender on intake forms

Homeless incorporated data on youth

Addressing Complex Needs and introducing gender neutral bath-

who are staying with others temporarily

Betsy Carlson, director of youth pro-

rooms to be inclusive of transgender

and determined that 13,966 unaccom-

grams at The Night Ministry, noted

youth.12 In addition, all youth receive

panied youth aged 14 to 24 were in the

that, for young people, seeing staff who

a copy of the resident handbook, which

city, 91 percent of whom stayed with

look like them in leadership positions is

explains The Night Ministry’s expecta-

others temporarily.7

critical to their growth, and The Night

tions for respect and tolerance toward

Ministry reflects this conviction through

youth and staff. Through focus groups

Youth who are in shelters are referred

its own staff, who are predominantly

and surveys, The Night Ministry involves

to The Night Ministry through Chicago’s

African-American and Latino. Carlson

youth in the design of its programs,

coordinated entry system.8 Others

added that The Night Ministry is striv-

which, said Carlson, “forces us to include

connect to The Night Ministry through

ing to examine “the ways that we can

a fair amount of racial equity because so

its youth outreach van and Youth

really be an antiracist organization [and

many of the young people that we serve

Outreach Team (YOT) members,

make] sure that we have more opportu-

are people of color.”13

who visit libraries, courthouses, and

nities for advancement … for people of

drop-in centers where young people

color in the organization.”11 Recognizing

Young people coming to The Night

who are experiencing homelessness

the link between racial disparities and

Ministry may identify various issues

may spend time.9 From July 1, 2020,

homelessness, Paul Hamann, president

linked to their experience of homeless-

to June 30, 2021, The Night Ministry

and chief executive officer of The Night

ness. Staff members must be dedicated

served 451 youth, 312 of whom were

Ministry, stated that the organization

to engaging youth. “We make a point

African-American. One hundred of these

and its leaders have a “moral obligation” of trying to support cultural competency

African-American youth also identified

to examine how their own positions of

with our staff, [and] we have trainings

as LGBTQ+. Overall, 166 youth identi-

privilege have implicitly or explicitly

that are on quite a number of differ-

fied as LGBTQ+, and 92 of them also

contributed to the racial climate. Staff

ent issues that are a part of youth

identified as other people of color. A

actively discuss how the organization

facing homelessness,” said Carlson.

total of 235 youth identified as other

can adapt its language and work culture

As part of their foundational train-

people of color. Among parenting or preg-

to more equitably serve people of color.

ing, staff members learn the basics of

nant youth, 26 were African-American,

The Night Ministry sought to improve

trauma-informed care, harm reduction,

20

motivational interviewing, restorative

their personal experiences with other

The Response-Ability Pregnant and

justice, and cultural competency for

youth.17

Parenting Program (RAPPP) began

working with LGBTQ+ and minority

in 2007 as the only shelter program in

youth. If young people experience

The Night Ministry operates an over-

Chicago that reserved beds for expect-

homelessness because of their sexual-

night emergency shelter for 21 young

ant and parenting mothers as young as

ity or family conflict, the staff work to

adults aged 18 to 24 called The Crib,

age 14. The program aimed to improve

establish rapport and address their

which opened in 2011 in Boystown,

the physical and emotional health of

needs.14 Recognizing the prevalence of

a predominantly LGBTQ+ community

clients and their children and develop

mental health challenges among youth

in Chicago’s Lakeview neighborhood.18

self-sufficiency through education,

experiencing homelessness, The Night

Now located on the ground floor of

access to public benefits, life skills, and

Ministry partners with Rush University

The Night Ministry’s new administrative

onsite support groups. RAPPP received

Medical Center to offer clients free

headquarters in Bucktown, The Crib

funding from the Basic Center Program

behavioral health counseling and

features a multipurpose room for dining,

administered by the U.S. Department

psychiatric care.15 Staff must also attend

group activities, and recreation as well as

of Health and Human Services (HHS),

first aid training in mental health

a dormitory with beds, gender noncon-

which meant minors could stay in the

and learn skills to promote positive

forming bathrooms, a large kitchen, and

program for up to 21 days. Additional

youth development.16

a laundry room. The computer lounge,

funding from general operating funds

which youth residents named The Vibe,

allowed RAPPP to serve young adults

Housing and Services

enables them to apply to jobs and access

over age 18, many of whom already

YOT case managers typically are the

resources.19 In keeping with The Crib’s

lived in the building.22 In fiscal year

first point of contact for young people

emphasis on ensuring representation

2020, RAPPP served 60 pregnant and

experiencing homelessness, connect-

of the LGBTQ+ community, some staff

parenting youth and 35 of their chil-

ing them to safe housing, education,

members are transgender, creating a wel-

dren. Among clients exiting RAPPP in

employment, and resources. In 2020,

coming and inclusive space for LGBTQ+

2020, 74 percent transitioned to safer

114 young adults received case man-

youth.20 The Crib also participates in a

and more stable housing.23

agement services through YOT. Other

shelter bed reservation system through

forms of engagement include social

a smartphone app called StreetLight

Over time, according to Carlson, the

media posts as well as phone calls,

Chicago, which allows youth experienc-

age of RAPPP clients began to shift

text messages, and in-person meetings

ing homelessness to reserve a bed. In

from younger to older teens.24 In

with young people. Peer outreach

2020, The Crib served 246 young adults

response to this change, The Night

professionals assist YOT by sharing

with a total stay of 5,357 nights.21

CONTINUED ON PAGE 23

Photo courtesy of The Night Ministry

Located at The Crib, The Vibe has computers and internet access so that youth can find employment and pursue education.

21

Supporting Vulnerable Youth Through Philanthropy

Philanthropic organizations and foundations provide vital resources when gaps in public funding exist or nonprofits need additional support to fulfill program goals. Launched in 2002 in Seattle, the Raikes Foundation works to prevent and end homelessness among youth and young adults through grant support to entities such as public schools, child welfare organizations, and juvenile justice systems.1 Casey Trupin, director of youth homelessness strategy at the Raikes Foundation, noted that philanthropies can fund a robust advocacy infrastructure that can help government officials pursue their agendas.2

According to the Raikes Foundation, prevention is the “most equitable, economic, and efficient” approach to ending youth homelessness. Prevention, along with examining student homelessness, crisis response, and advocacy, forms the Raikes Foundation’s four-pillar strategy for ending youth homelessness.3 In 2011 and 2013, the Raikes Foundation engaged service providers, local government officials, current and former youth experiencing homelessness, and private philanthropic organizations to prioritize preventing and ending youth homelessness in King County.4 The team’s discussions led to the formation of Washington’s Office of Homeless Youth (OHY), which is charged with leading state initiatives to prevent youth homelessness; assisting providers in establishing best practices; and funding programs to stop discharging youth from the foster care, behavioral health, and juvenile justice systems into homelessness.5 The number of youth in Washington State exiting public systems of care into homelessness decreased 15 percent between 2013 and 2017.6

The foundation supports initiatives that are part of a coordinated system in which the community and public systems address homelessness through a joint effort rather than operating within silos. Organizations supporting juvenile justice reform, for example, also play a role in preventing youth homelessness. Critical to reducing recidivism is screening young people for housing instability and providing financial and social service supports to enable them to return home rather than enter the shelter system. “If we can at least come together and start having that conversation around the gaps, we actually think this is an absolutely solvable problem if we focus first on equity and we think about it as something that multiple agencies and partners have to own,” said Trupin.7

The Raikes Foundation also supports youth voices in policy decisions by funding grants to organizations such as the Mockingbird Society, a Washington nonprofit organization that helps youth develop public speaking and advocacy skills while furthering systems change.8 During the Mockingbird Society’s 2021 virtual youth leadership summit, young advocates addressed OHY and the Washington State Supreme Court Commission on Children in Foster Care and presented recommendations such as developing safe and affirming placements for LGBTQ+ youth, expunging criminal records, and increasing access to financial literacy.9

At the onset of the COVID-19 pandemic, the Raikes Foundation partnered with Building Changes to create the Washington

State Student and Youth Homelessness COVID-19 Response Fund to boost public funds to support students, youth,

and young adults experiencing homelessness. Working in concert with OHY, young people with lived experience of homelessness, and a network of school administrators and housing providers, Building Changes and the Raikes Foundation prioritized funding organizations that directly serve youth representing several marginalized subgroups.10 From April 24, 2020, to March 30, 2021, the fund awarded $4.1 million in grants to 199 community-based organizations, service providers, schools, and tribes serving 25 counties across Washington.11

1 Raikes Foundation. “About Jeff and Tricia Raikes” (raikesfoundation.org/about-jeff-and-tricia-raikes). Accessed 26 October 2021; Raikes Foundation. “Progress”

(raikesfoundation.org/youth-homelessness-progress). Accessed 26 October 2021; Raikes Foundation. n.d. “Youth and Young Adult Homeless Strategy,” Document provided by Casey Trupin, 1 December 2021.

2 Interview with Casey Trupin, 30 November 2021.

3 Raikes Foundation, “Youth and Young Adult Homeless Strategy.”

4 Raikes Foundation. n.d. “Preventing and Ending Youth and Young Adult Homelessness,” 3; U.S. Department of Housing and Urban Development, Office of Policy

Development and Research. 2014. “The Secretary’s Award for Public-Philanthropic Partnerships - Housing and Community Development in Action.”

5 A Way Home Washington. n.d. “Frequently Asked Questions,” 2; Interview with Casey Trupin; Raikes Foundation, “Progress.”

6 Raikes Foundation, “Youth and Young Adult Homeless Strategy.”

7 Interview with Casey Trupin.

8 Ibid; Raikes Foundation. “Progress”; The Mockingbird Society. “Youth Programs” (mockingbirdsociety.org/youth-programs). Accessed 1 December 2021.

9 The Mockingbird Society. “Youth Leadership Summit” (mockingbirdsociety.org/annual-events/youth-leadership-summit). Accessed 2 February 2022.

10 Building Changes. “Washington State Student and Youth Homelessness COVID-19 Response Fund” (buildingchanges.org/our-work/covid-19-response/).

Accessed 6 December 2021; Building Changes. “Fund FAQ” (buildingchanges.org/our-work/covid-19-response/faq/). Accessed 2 February 2022; Subgroups include: black, indigenous, people of color, LGBTQ+, those with disabilities, parenting, expectant, immigrants, non-English speakers, and those who have experienced incarceration, sex trafficking, or domestic violence.

11 Building Changes. 2021. “Supporting K-12 Students and Young People Experiencing Homelessness through the Pandemic: Needs and Opportunities for Systems Change.”

22

CONTINUED FROM PAGE 21

Ministry received $250,000 in Mater-

for Self-Sufficiency (STEPS) program

through the city’s coordinated entry

nity Group Homes for Pregnant and

provided up to 2 years of transitional

system; the other four receive HHS fund-

Parenting Youth funding from HHS

housing and life skills coaching for eight

ing, and resident referrals can come

in fiscal year 2021.25 Eligible clients

young adults aged 18 to 22. Designed

from several sources. Four additional

for this funding are at least age 16,

as a stepping-stone toward independent

beds in two nearby apartment units also

and participating teens can stay in

living, the program was also open to

receive coordinated entry referrals.

the shelter for up to 21 months and

expectant mothers or parenting youth

These apartments are ideal for those

transition to permanent housing once

with infants or toddlers. In fiscal year

who desire more independence but

they exit. As Carlson explained, “[A]

2020, a total of 19 young adults and 3

want the option to return to the main

lot of times, people would move from

of their children participated in STEPS

house for group activities. The Night

[the Basic Center Program] into a

and stayed a total of 2,586 nights. All

Ministry made these changes in re-

transitional housing program … with

residents who transitioned to perma-

sponse to youth input collected during

another agency,” so the updated model

nent housing remained housed 90 days

quarterly surveys and house meetings.

for RAPPP allows teens more continuity

after leaving the program. In fiscal

As with STEPS, Pathways provides hous-

of care and better long-term stability as

year 2020, nearly 90 percent of STEPS

ing and supportive services for up to 2

they transition to permanent housing.

participants indicated that they met

years. The program received a $148,133

In fall 2021, staff solicited ideas from

someone in the program they could rely

HUD CoC grant in fiscal year 2021, and

program alumni and current clients,

on for support after exiting.29 Although

the city of Chicago’s coordinated entry

who voted for a new name for the pro-

STEPS was only an eight-bed program,

system refers young people to the pro-

gram: Parenting with Purpose.26

Carlson noted that its impact was sig-

gram. The Pathways program’s hybrid

nificant for those who were housed.30

living arrangements help young people

Parenting with Purpose remains an

In December 2021, The Night Ministry

access services that adapt to their needs

eight-bed program, and, as of Decem-

merged STEPS with Phoenix Hall — a

at their current stage in life.34

ber 2021, plans are underway within

year-round residence in Chicago’s

another facility to create individual

North Lawndale neighborhood for

The teenage years and young adult-

bedrooms to provide private space for

local high school students experienc-

hood are a critical time for developing

family units. Because program surveys

ing homelessness or housing instability

independence and self-awareness, and

revealed that respondents prefer more

— to form a hybrid housing program

The Night Ministry’s programs honor

privacy, converting the shelter’s design

called Pathways.31 This merger was a

youth voices. Encouraging youth to

from communal to more independent

response to the changing demograph-

be confident public speakers is one

space will become increasingly impor-

ics and needs of youth enrolled in both

aspect of the Youth 4 Truth leadership

tant as clients stay for longer periods.27

programs. Some people referred to

development program.35 Young people

STEPS through the city of Chicago’s

who are current or former participants

Expectant and parenting youth under

coordinated entry system would decline

in The Night Ministry programs can

16 do not qualify for Parenting with

to participate because they did not

apply to participate in a 10-week cohort

Purpose, so The Night Ministry serves

want to live in a congregate setting.32

that collectively decides on a goal or

this group through its Interim Housing

The Night Ministry created Phoenix

issue to tackle, such as career advance-

Program, which is a short-term housing

Hall in 2017 based on feedback from

ment, youth advocacy, voting rights,

program for youth aged 14 through

staff at North Lawndale College Prep

or food insecurity.36 Mia Sostrin, a

21 and their children. Although the

High School, who indicated that some

Youth 4 Truth participant, said that the

Interim Housing Program does not

students needed housing services; yet,

program has boosted their confidence

focus on pregnant and parenting

as Carlson noted, The Night Ministry

in public speaking, especially when

youth, it can accommodate their needs

could not fill all beds in the program

conducting group meetings.37 Program

and is designed to help youth return to

because fewer clients than anticipated

participants relate their experiences

their families or find safe housing.

who needed assistance were still

at public events with other community

A total of $85,808 in HUD Continuum

enrolled in high school.33 By removing

organizations, and some have even

of Care (CoC) grants and $199,350 in

the educational requirement, Pathways

testified before the state legislature on

HHS Basic Center Program funds sup-

lowers barriers to entry and opens

their concerns about finding employ-

ported the Interim Housing Program

services to more young people in need.

ment, the effects of eviction, and the

in fiscal year 2021.28

Pathways now uses the former Phoenix

need for mobile mental health services

Hall as the main house for residents,

for youth experiencing homelessness.38

Launched in 2006 at The Night Minis-

which has dormitory-like elements

Youth 4 Truth participants also engage

try’s Open Door Shelter in Chicago’s

with bedrooms and communal living,

in community service projects such as

West Town neighborhood, the Success-

dining, and study space for up to eight

preparing meals to distribute to clients

ful Transitions Effectively Preparing

people, four of whom must be referred

who visit the health outreach bus.

23

Photo courtesy of New Avenues for Youth

Robinswood is a safe haven where hard-to-house foster youth can receive clinical case management and shelter.

Sostrin explained that Youth 4 Truth

families who had lost their jobs or were

youth qualify for permanent supportive

has helped them improve their interview

unable to leave home because of health

housing unless they have a disabling

skills and gave them both a voice in

or transportation challenges.40

condition. Articulating these concerns

business meetings at The Night Minis-

to policymakers within the context of a

try and the opportunity to learn from

Carlson acknowledged that balancing

much larger system, Carlson suggested,

outside organizations.39 This program

the needs of youth within the con-

is vital to ensuring that youth have

gives young people a space to be heard,

straints of different funding streams can

access to adequate housing options.41

and their input informs programs and

be complicated. For example, a client

policymaking.

enrolled in the Interim Housing Pro-

Addressing Youth Home-

gram would not necessarily be able to

lessness in Portland, Oregon

Overcoming Challenges

move into the more independent com-

New Avenues for Youth emerged in

The COVID-19 pandemic forced staff

munity apartments at Pathways since

1997 to serve young people experi-

to modify program operations without

the units are HUD funded and require

encing homelessness in Portland and

sacrificing vital services. With the issu-

a referral from the city’s coordinated

Multnomah County in Oregon. Since

ance of Illinois’ shelter in place order,

entry system. Participants enrolled in

its launch, the organization has sup-

The Crib began 24-hour operations to

Parenting with Purpose do not need a

ported more than 30,000 youth who

shelter more than 160 youth over several

referral from Chicago’s coordinated

disproportionately are people of color

months. Case management and behav-

entry system because HHS funds the

and who identify as LGBTQ+.42 Although

ioral health services shifted to phone and

program; however, if walk-ins have not

the January 2019 PIT count for Mult-

virtual platforms, and youth took part

filled the beds in the Parenting with

nomah County, including the city of

in socially distant recreational activities.

Purpose program, staff members can

Portland, only tallied seven unaccompa-

Staff regularly checked in with youth to

contact the city’s coordinated entry

nied minors, the actual number likely

assess their needs, especially those who

system to identify young people who

is considerably higher because many

had exited the program and needed

are parenting or pregnant. Further-

youth are hesitant to participate and

help accessing stimulus payments and

more, although there tends to be more

because PIT counts reflect only a single

unemployment benefits. Staff delivered

permanent supportive housing units

night rather than a longer period.43 The

groceries to program alumni and their

than transitional housing beds, few

homeless youth system in Multnomah

24

County serves roughly 1,000 youth per

with children. New Avenues for Youth

across all of its housing programs, with

year; 2021 data indicate that 30 percent

operates the facility in partnership

96 percent of residents who exited its

of those served identify as LGBTQ+,

with local nonprofit Bridge Meadows,

onsite transitional housing program

46 percent of whom are also black, in-

which develops intergenerational living

during the year moving to stable hous-

digenous, or people of color (BIPOC).

communities for foster care alumni,

ing.55 According to Suib, New Avenues

Multnomah County officials estimate

adoptive parents, and seniors.48 To help

for Youth considers these programs as

that approximately 2,000 county

youth increase their self-sufficiency,

“transition to launch” with a focus on

youth are experiencing homeless-

New Meadows residents pay a small fee

preparing young people for greater

ness, but this number increases when

toward their rent. Although this pay-

self-sufficiency.56

including youth who are unsafely

ment increases marginally over time, it

housed, such as those involved in

remains considerably below the market

Youth who are welcomed by staff who

sex trafficking or who are couch surfing

rate for rent in the area. “[The modest

share their gender and racial identities

or doubled up.44

fee] is mostly token [and] designed to

feel safe, understood, and heard, which is

get youth acclimated to budgeting and

particularly helpful for those working with

New Avenues for Youth is one of four

paying bills,” noted Sean Suib, execu-

hard-to-place foster youth. Faced with

agencies participating in the Multnomah

tive director of New Avenues for Youth.

full psychiatric beds and a state child

County Homeless Youth Continuum

To ensure that no one loses housing

welfare system so overwhelmed that

(HYC), a unified system offering sup-

because of an inability to pay, New

it was diverting children to hotels, New

port and services to youth through an

Avenues for Youth uses private funds

Avenues for Youth opened Robinswood

integrated network and streamlined

to finance program fees for youth who

in September 2017 as a shelter offering

screening process. Through HYC, New

may not have an income or qualify for

supportive services for hard-to-place

Avenues for Youth conducts street out-

a housing subsidy.49

foster youth aged 9 to 20. Approximate-

reach and receives referrals from the

ly 45 percent of staff members identify

child welfare, juvenile justice, school,

Another New Avenues for Youth

as people of color and 24 percent are

and other community systems.45 New

transitional housing program, Unity

LGBTQ+, making them particularly

Avenues for Youth serves approximately

House, launched in 2015 as Oregon’s

suited for establishing rapport.57 Youth

1,200 to 1,400 youth annually across its

first housing program for LGBTQ+

are assigned to a clinical case manager

programs. Currently, 61 percent of New

youth experiencing homelessness.

who uses a trauma-informed approach

Avenues for Youth clients are BIPOC,

Unity House builds on the LGBTQ+

to guide them toward their educational,

and 42 percent of the organization’s

services offered through New Avenues

vocational, and independent living

African-American clients also identify

for Youth’s Sexual & Gender Minority

goals.58 From 2017 to 2019, Robinswood

as LGBTQ+.46

Youth Resource Center (SMYRC). Within

stabilized and placed more than 250

its first year, Unity House became home

youth in trauma-informed foster homes

Serving Intersectional

to 5 residents and had 15 youth on its

or reunited them with families.59

Identities

waiting list.50 New Avenues for Youth

The nonprofit runs several onsite

strives to keep youth voices at the

New Avenues for Youth also connects

and community-based programs that

center of its work and benefited from

young people to various subsidized

offer short-term housing to specific

bringing SMYRC into the fold in 2015.51

housing options, including perma-

populations along with evidence-based

Suib noted that SMYRC has a long-

nent supportive housing for those

approaches such as trauma-informed

standing practice of engaging a youth

with disabilities or those who meet

care, harm reduction, and positive

steering committee when implement-

the criteria for chronic homelessness;

youth development. The larger tran-

ing different services.52 SMYRC offers

rapid rehousing; and housing choice

sitional housing program is based in

social gatherings, support groups, case

vouchers allocated under HUD’s

a 26-bed congregate care program,

management, education, and behav-

Foster Youth to Independence pro-

but New Avenues for Youth also oper-

ioral health counseling with a mental

gram for youth alumni of the foster

ates smaller-scale transitional housing

health specialist for LGBTQ+ youth

care system.60 From 2019 to 2020, New

programs such as New Meadows, which

aged 13 to 23. In addition, SMYRC

Avenues for Youth made 217 housing

targets youth aging out of foster care,

provides a food pantry, clothing closet,

placements and interventions across

including parenting youth.47 The New

and personal hygiene products to

its programs.61 Suib emphasized that

Meadows program at the Dorothy

youth in need.53 In the 2020–2021 pro-

“it really is about trying to braid these

Lemelson House serves youth aged 17

gram year, 138 youth accessed services

different funding [sources] together,

to 24 who are transitioning out of foster

at SMYRC.54

so it’s not just [about] what we have

care; it provides 10 studio apartments

available for a young person, but what

for residents without children and 4

In the 2020–2021 program year, New

is the best fit for a young person’s

one-bedroom apartments for residents

Avenues for Youth housed 170 youth

need.”62

25

Meeting Youth Where

current career at a customer service and

New Avenues for Youth determined

They Are

business technology company. Brown

that the number of hours devoted to

New Avenues for Youth’s combination

earned a certificate in small business

case management — an indicator of

of housing services, case management,

management and public relations,

youth engagement — is a significant

and career development programs

and she is currently working toward a

predictor of a positive outcome. To

helped Nitara Brown, a former New

certificate in business law. Brown said

eliminate barriers to engagement, the

Avenues for Youth participant, become

that a critical component of her success

organization tailors its programs to the

more self-sufficient. Brown learned

was maintaining an “insightful, reli-

individual needs of youth. According to

time management, financial literacy,

able plan,” which does not need to be

Suib, “[F]or some youth, employment

and life skills such as “managing a

detailed but should be something that

services may best be accessed through

home and keeping a home tid[y].” She

“a person can stick to and not com-

our career training center, [while] for a

diligently used her time in the programs

promise on that is realistic and easy

youth who’s experienced sexual exploi-

to identify different avenues for success

enough to be followed through [to]

tation or trafficking, it may look like a

and learned how to make that success a

completion.” The team at New Avenues

specialized cohort, a job readiness class

reality. As case managers and program

for Youth supported Brown as she navi-

provided in a confidential setting. Some

staff worked with Brown, she began to

gated challenges and helped her keep

youth may opt to come to our alterna-

take the initiative and seize available

her goals — developing independence,

tive education center, [while other]

opportunities to achieve her goals —

finishing school, and finding employ-

youth may need mobile education

qualities that should prove useful in her

ment — in perspective.63

support that can be brought directly to

Non-Time-Limited Housing for LGBTQ+ Young Adults

Unlike transitional housing, which provides youth with shelter for a predetermined duration, non-time-limited housing allows young people to develop the life skills and stability needed to live independently without the concern of losing support prematurely. Homeward NYC, launched in 1989, is a New York City nonprofit doing business as West End Intergenerational Residence. Because transitional housing typically lasts a maximum of 2 years, Homeward NYC decided to create housing that gives young people more time to process the trauma of homelessness.1 In response to the growing need to assist LGBTQ+

youth experiencing homelessness because of family rejection and gender-based abuse, Homeward NYC created New York City’s first non-time-limited housing site for LGBTQ+ young adults in 2011 in West Harlem. The organization’s second non-time-limited housing location opened in the Bronx in 2015.2 Although residents must be aged 18 to 24 to be eligible for housing, they can continue to stay in their units beyond age 25.3 Homeward NYC chief executive officer Jeannette Ruffins explained that even though these sites are permanent supportive housing, the agency prefers the term “non-time-limited housing” because it connotes the expectation that young people will ultimately move on.4

Young adults seeking housing must apply through the city’s Human Resources Administration and meet the eligibility criteria for permanent supportive housing under the 2005 NY/NY III agreement — the third and final agreement between New York City and New York State to collectively create approximately 15,000 units of supportive housing.5

Homeward NYC staff also contact the city’s Department of Youth and Community Development and other LGBTQ+

service agencies when they have an opening.6 Funded through the city’s Department of Health and Mental Hygiene, each of Homeward NYC’s non-time-limited housing sites offer furnished efficiency apartments for 30 LGBTQ+ residents.7

Homeward Bronx reserves 22 of its 30 units for NY/NY III population A (single adults suffering from serious mental illness and/or chemical addiction), and Homeward West Harlem reserves 18 of its 30 units for population E (single adults dealing with substance abuse). Across the 2 sites, 7 units are reserved for those who are disabled, and 13 general population units are available to young people without a medical or disabling condition.8 To reduce the extensive waiting lists for these units, a third non-time-limited housing site, Homeward Central Harlem, is slated to open in fall 2023 and will house 50 LGBTQ+ young adults.9

26 Staff instill the concept of “moving on” in stable residents to help them transition to independent living in an apartment in the community. Staff encourage residents who push back against the rules to think about their future, Ruffins explained.

For example, if residents invite their partners to live with them full time, staff encourage them to consider a larger apartment in the community. As young people in the program begin creating long-term plans, they develop an understanding of how to budget for an apartment, develop and maintain good credit, and accrue savings. Residents stay in Homeward 26

them in [the] community. By braiding

2019–2020 program year and generated have an opportunity to attend college.

our programming, we try to allow for

more than $374,000 in revenue for the

Zahra connected with New Avenues

this kind of flexibility.”64

organization.67

for Youth as a high school student and

received support from ILP life skills

New Avenues for Youth offers its clients

New Avenues for Youth also offers an

coaches, who helped them develop

a continuum of options that form the

Independent Living Program (ILP) for

basic real-world skills, apply to college,

backbone of its work.65 The organization

youth transitioning out of the foster

and finance college tuition and books.

owns and operates two social purpose

care system. In addition to connecting

As an ILP participant, Zahra established

enterprises that offer youth paid,

youth to job training and placement

a supportive community composed

hands-on work experience and men-

services, New Avenues for Youth’s

of mentors, coaches, and other foster

torship. Young people gain customer

ILP, the largest of its kind in the state,

youth. “Nobody ever taught me how to

service and business skills working at

provides mental health, bilingual, and

take care of myself,” said Zahra. “I took

the Ben and Jerry’s PartnerShop in

culturally specific LGBTQ+ supports

a money management class with New

downtown Portland. Opened in 2013,

for youth as well as services to help

Avenues as well and have had great job

New Avenues INK teaches youth screen

youth access postsecondary education.68

opportunities, help finding housing

printing while also building their mar-

As an immigrant and a war refugee,

and resources during COVID, and …free

keting, business, and graphic design

Zahra Malikshah, an ILP participant,

legal help.” Zahra credits New Avenues

skills.66 These social purpose enterprises entered the foster care system at 15

for Youth with creating a “sense of

provided 78 jobs and internships in the

and never thought that they would

belonging” for youth, which made them

NYC’s housing for an average of 4 years. In 2021, Homeward NYC served roughly 60 LGBTQ+ young adults at its non-time-limited housing sites, and 12 residents moved to independent housing.10

Staff encourage youth to work at their own pace and use the voluntary onsite services such as behavioral health counseling, benefits advocacy, a medical van, job readiness training, and life skills programs.11 Each site has a clinical care coordinator who uses a harm reduction model to help clients understand how their substance use has interfered with their ability to pay their bills and maintain a job. The sites also have a life skills manager who helps clients develop healthy relationships and set educational and vocational goals. The life skills manager also coordinates with nutritionists and healthcare providers to lead workshops on diet and wellness. Once clients move in and stabilize, they typically increase their income through steady employment; however, pandemic-related job losses among part-time and seasonal workers in the retail and hospitality sectors stymied some of this progress.12

Young people ready to move on from Homeward NYC’s housing can receive a housing voucher and community resources to facilitate their stability.13 Ruffins indicated that case managers strive to maintain their connection with young people who have moved on, especially within the first 6 months of exiting. This connection is currently informal, but Homeward NYC is examining the feasibility of creating a formal aftercare component and evaluating how effectively its services maintain clients’ long-term stability.14

1 Interview with Jeannette Ruffins, 14 January 2022; Homeward NYC. “History” (homeward.nyc/we-are/history/). Accessed 30 December 2021; Homeward NYC.

“Annual Reports” (homeward.nyc/annual-reports/). Accessed 10 January 2022.

2 Homeward NYC. 2021. “Homeward News: Live Life Forward.” Summer, Fall Newsletter; Corporation for Supportive Housing. 2016. “No Strings Attached:

Helping Vulnerable Youth with Non-Time-Limited Supportive Housing,” 2.

3 Homeward NYC. “We serve LGBTQ young adults healing from rejection and trauma” (homeward.nyc/we-serve/lgbtq-young-adults/). Accessed 6 January 2022.

4 Interview with Jeannette Ruffins.

5 Homeward NYC, “We serve LGBTQ young adults healing from rejection and trauma”; Supportive Housing Network of New York. “NY/NY Agreements.”

(shnny.org/what-we-do/advocacy-policy/ny-ny/#:~:text=NY%2FNY%20III,housing%20in%20the%20nation’s%20history). Accessed 9 February 2022;

Center for Urban Community Services Housing Resource Center. 2019. “The NY/NY Agreements to House Homeless Mentally Ill Individuals.”

6 Interview with Jeannette Ruffins.

7 Ibid; Homeward NYC. “Our Locations” (homeward.nyc/we-are/locations/). Accessed 14 January 2022.

8 Homeward NYC, “We serve LGBTQ young adults healing from rejection and trauma”; Center for Urban Community Services Housing Resource Center 2019.

9 Interview with Jeannette Ruffins; Homeward NYC. “Our Locations.”

10 Interview with Jeannette Ruffins.

11 Colleen K. Jackson. 2012. “True Colors Residence: Permanent Supportive Housing for LGBT youth in New York City,” 9.

12 Interview with Jeannette Ruffins.

13 Corporation for Supportive Housing 2016, 3.

14 Interview with Jeannette Ruffins.

27

feel as though they were never alone

care, counseling, 24/7 crisis support,

hiring practices, program design, and

despite being the only member of their

and academic resources to victims

operations. Managers participate in

family living in the United States. Now

of domestic violence, children, and

training and leadership development

a first-generation college student, Zahra

youth.72 Along with several other agen-

sessions led by the director of equity

said that, ultimately, New Avenues for

cies, Call to Safety, Raphael House, and

and inclusion that focus on racial

Youth “taught me how to advocate for

New Avenues for Youth are part of the

consciousness. In addition, the orga-

myself when I need to and to authenti-

Multnomah County Sex Trafficking

nization has implemented a resiliency

cally be myself.”69

Collaborative, which allows individuals

fund to advance the professional devel-

and service providers to share informa-

opment of its BIPOC staff. Youth often

Continuity of Service

tion and fill gaps to better assist victims

are invited to attend board meetings

Delivery

and at-risk individuals.73 New Avenues

to offer insights and hear updates.77

Suib noted that when a service does

for Youth refers clients needing sup-

not exist in the community, New Avenues

port to Call to Safety’s 24/7 crisis

The onset of the COVID-19 pandemic

for Youth devises creative ways to fill those

hotline.74 In the 2020–2021 program

required New Avenues for Youth staff to

gaps.70 One example of the organiza-

year, 71 percent of young people in

adjust operations to continue to meet

tion’s flexibility and responsiveness to

New Day were BIPOC, and 61 percent

clients’ needs. Among these adjustments

community needs is its plan to develop

identified as LGBTQ+.75 More than 200

has been the increased use of a mobile

a culturally responsive transitional

youth used New Day’s services from

outreach van with private meeting

housing model as part of the New Day

2020 to 2021.76

space where young people can receive

program, which offers safety planning,

mental health counseling, harm reduc-

wraparound case management, men-

In response to recent social movements

tion resources, and other services.78

torship, and skill-building services for

to raise Americans’ consciousness of

While the organization’s Drop-In Day

youth aged 12 to 25 who have experi-

the nation’s long history of systemic

Services Center in downtown Portland

enced or are at risk of sex trafficking.71

racism, New Avenues for Youth has cre-

traditionally serves meals inside, social

New Day operates in partnership with

ated an agency equity plan and activities

distancing guidelines limited the num-

Call to Safety, Raphael House, and Self

to create more inclusive environments

ber of people who could be inside so

Enhancement, Inc. — local nonprofit

for youth and staff. Equity-based values

the Center provided food to go from

service providers offering shelter, medical

are embedded in the organization’s

its kitchen. The Drop-In Center also

Photo courtesy of New Avenues for Youth

Youth gain paid work experience at the New Avenues INK screen printing shop, where they also learn how to advertise the items they make.

28

Photo courtesy of New Avenues for Youth

New Avenues for Youth operates a Ben and Jerry’s shop where young people gain customer service skills in addition to paid work experience.

extended its hours and referred youth

trying to [keep] people from becoming

tailored to meet the distinct needs of

for COVID-19 testing. New Avenues

homeless and [help them] exit homeless-

youth with intersecting identities and

for Youth programs pivoted to small,

ness in a city that’s becoming … harder

experiences. Case managers at The

socially distanced meetings and check-

and harder to afford,” said Suib. The

Night Ministry, Carlson said, address

ins by phone or online video for case

organization has had to pool resources

“the issues that a young person identi-

management and career coaching. The

and advocate for additional public

fies for themselves,” and New Avenues

transitional housing programs hired

funding so that staff can receive fair

for Youth ensures that its services are

onsite bilingual staff to support students

wages that keep up with the cost of living.

flexible and creative to account for

who were learning remotely. Case manag-

Often, the need to remain compliant

each client’s individual needs.82 Both

ers and career coaches delivered food,

with complex regulations to receive

organizations consider participation

supplies, work clothes, bus passes, and

public funding detracts from the

in intensive case management services

laptops to ensure that youth could

organization’s central focus of helping

while enrolled in housing programs

continue to meet their vocational and

young people. “It’s very hard to build

vital to success. Because their clients

educational goals.79 Suib noted that

a systemic response when every few years

have varying needs, the agencies evalu-

the organization had to maintain these

the ground could be pulled out or the

ate their impact at the individual level.

operations while paying close attention

resources could be [revoked],” Suib

One participant may need legal services

to the needs of staff, who experienced

said. Critical to building a long-term,

to prevent an eviction, while another

burnout and risked coronavirus expo-

sustainable response, Suib said, is find-

may need behavioral health support to

sure while delivering services.80

ing the ideal “mix of public-private

instill lifelong coping skills, yet both ser-

dollars to scale impact but not lose

vices positively influence participants’

Beyond the challenges of the pandemic,

innovation and flexibility.”81

long-term outcomes.83 Providers that

New Avenues for Youth is grappling

are receptive to youth input can adjust

with broader livability challenges

Conclusion

services based on feedback — flexibility

in a city that is increasingly unafford-

The various housing and service pro-

that is critical to addressing youth

able, which is contributing to housing

grams offered at The Night Ministry

homelessness. Along with youth input,

instability among young people. “We’re

and New Avenues for Youth can be

staff training sessions help ensure that

29

programs and policies remain racially

Group Homes for Pregnant and Parenting Youth

52 Interview with Sean Suib.

(MGH) Program, FY2021”; Email correspondence equitable and inclusive. The programs

53 New Avenues for Youth. “Sexual & Gender Minority

from Betsy Carlson 3 January 2021.

Youth Resource Center (SMYRC)” (newavenues.org/

offered at these organizations help

26 Interview with Betsy Carlson.

smyrc/). Accessed 7 December 2021.

youth experiencing homelessness real-

27 Ibid.

54 New Avenues for Youth. “Our Services” (newavenues.

ize their voice in decisionmaking and

28 Ibid; The Night Ministry. “Housing” (thenightministry.

org/program-overview/). Accessed 26 January 2022.

55

ultimately serve as springboards to self-

org/housing). Accessed 14 December 2021; The Night Email correspondence with Sean Suib, 5 January 2022;

Ministry and Subsidiary 2021.

New Avenues for Youth, “Our Services.”

sufficiency.

29 The Night Ministry. 2020. “STEPS Transitional Living

56 Interview with Sean Suib.

Program”; The Night Ministry. 2021. “Celebrating 45

57 Tabitha Jensen. 2019. “Senate Bill 137 Testimony”;

Years: West Town Facility Enhances and Expands Ser-

1 Matthew H. Morton, Shannon Kugley, Richard Epstein,

Steve Duin. 2019. “A Minor Miracle: Finally, Some

and Anne Farrell. 2019. “Missed opportunities: Evidence

vices for Homeless Youth, ” 31 August Blog post.

Good News About Oregon’s Troubled Foster Care,”

on interventions for addressing youth homelessness,”

30 Interview with Betsy Carlson.

Willamette Week, 11 December; New Avenues for Youth,

Chicago, IL: Chapin Hall at the University of Chicago,

31 The Night Ministry. 2021a. “Youth Programs to

“Our Services.”

10–2.

Offer More Flexible Long-Term Housing Solutions,”

58 New Avenues for Youth. “Robinswood” (newavenues.

2 The Night Ministry. “About The Night Ministry” (the-

2 December Blog post; The Night Ministry. 2020c.

org/robinswood). Accessed 22 October 2021.

nightministry.org/about). Accessed 28 January 2022.

“Phoenix Hall.”

59 Jensen; Duin.

3 The Night Ministry. “Get Assistance” (thenightministry.

32 Interview with Betsy Carlson.

60 Interview with Sean Suib.

org/get-assistance). Accessed 28 January 2022.

33 Ibid; The Night Ministry 2020c.

61 Email correspondence with Sean Suib, 18 February

4 Interview with Betsy Carlson, 24 November 2021.

34 Interview with Betsy Carlson; The Night Ministry

2022.

5 Voices of Youth Count. 2017. “Missed Opportunities:

2021a; The Night Ministry and Subsidiary 2021.

62 Interview with Sean Suib.

Youth Homelessness in America, ” Chicago, IL: Chapin 35 Interview with Betsy Carlson.

Hall at the University of Chicago, 5–6.

63 Email correspondence with Nitara Brown, 15 Decem-

36 The Night Ministry. 2020d. “Youth 4 Truth Elevates

ber 2021.

6 Chicago Department of Family and Support Services

Youth Voices at The Night Ministry and Beyond. ” 29

and the University of Illinois at Chicago. 2021. “City of

64 Interview with Sean Suib.

June Blog post.

Chicago 2021 Homeless Point-in-Time Count & Survey

65 Ibid.

37

Report, ” 10.

Email correspondence from Mia Sostrin, 6 January

2022.

66 New Avenues for Youth. “Job Training & Employment”

7 David Mendieta and Samuel Carlson. 2021. “Estimate

(newavenues.org/job-training-and-employment/). Ac-38

of Homeless People in Chicago (2015-19), ” Chicago The Night Ministry 2020d; Interview with Betsy

cessed 26 January 2022; New Avenues for Youth. 2018.

Coalition for the Homeless, 1; 5.

Carlson.

“2013 - New Avenues INK Opens,” Facebook post.

39

8 Interview with Betsy Carlson.

Email correspondence from Mia Sostrin, 6 January

Accessed 7 December 2021.

2022.

9 The Night Ministry. 2020a. “The Youth Outreach Team

67 New Avenues for Youth 2020, 15–6.

and The Crib.”

40 National Clearinghouse on Homeless Youth and

68

Families 2020.

New Avenues for Youth. “PDX-Connect” (newavenues.

10 Email correspondence from Betsy Carlson, 3 January

org/pdx-connect). Accessed 21 October 2021.

2022 and 4 January 2022.

41 Interview with Betsy Carlson.

69 Email correspondence with Zahra Malikshah, 27

42

11 Interview with Betsy Carlson.

New Avenues for Youth. 2020. “2019-20 Annual Re-

December 2021 and 28 December 2021.

port,” 4; Interview with Sean Suib, 6 December 2021.

12 The Night Ministry. 2021. “The Night Ministry in 2021:

70 Interview with Sean Suib.

A Live Q/A with President & CEO Paul W. Hamann.”

43 City of Portland, Home Forward, A Home for Every-

one, Multnomah County, City of Gresham, Tiffany

71 Email correspondence with Sean Suib, 5 January 2022.

13 Interview with Betsy Carlson.

Renée Conklin, Cameron Mulder, Portland State

72 New Avenues for Youth. “Services for Youth Experienc-

14 Ibid; National Clearinghouse on Homeless Youth and

University Regional Research Institute. 2019. “2019 

ing Sex Trafficking or Exploitation” (newavenues.org/

Families. 2020. “Get to Know a Grantee: The Night

Point-In-Time: Count of Homelessness for Portland/

new-day/). Accessed 25 March 2022; Call to Safety.

Ministry.”

Gresham/Multnomah County, Oregon, ” 27; 29.

“Resources” (calltosafety.org/resources/). Accessed 25

15 National Clearinghouse on Homeless Youth and

44 Interview with Sean Suib.

March 2022; Social Enhancement Inc. “Youth Servic-

Families 2020.

es” (selfenhancement.org/home). Accessed 25 March

45 Multnomah County. 2021. “Homeless Youth Continuum

16 Interview with Betsy Carlson.

ServicePoint Handbook,” 1; Multnomah County. n.d.

2022; Raphael House. “Our Services” (raphaelhouse.

17 The Night Ministry 2020a.

“Multnomah County Homeless Youth Continuum

com/our-services/). Accessed 25 March 2022.

18 Ibid; Interview with Betsy Carlson.

(HYC) Overview, ” 1.

73 Multnomah County. 2018. “Sex Trafficking Network

Meeting Minutes.”

19 Interview with Betsy Carlson; The Night Ministry. 2020.

46 Interview with Sean Suib.

“The Crib Overnight Shelter Has a New Home, ” 14

74 New Avenues for Youth, “Services for Youth Experienc-

47 Ibid.

July Blog post.

ing Sex Trafficking or Exploitation.”

48 Carlton Hart Architecture. “Dorothy Lemelson House”

20 Interview with Betsy Carlson.

75

(carletonhart.com/dorothy-lemelson-house). Accessed Interview with Sean Suib.

21 The Night Ministry 2020a.

26 January 2022; Bridge Meadows. “About Us” (bridge-

76 New Avenues for Youth, “Our Services.”

22 Interview with Betsy Carlson; The Night Ministry.

meadows.org/about-us/). Accessed 22 October 2021.

77 New Avenues for Youth. “New Avenues for Youth

2020b. “Response-Ability Pregnant and Parenting

49 Email correspondence from Sean Suib, 9 February

Equity Statement” (newavenues.org/new-avenues-for-

Program (RAPPP)”; U.S. Department of Health & 2022.

youth-equity-statement/). Accessed 26 January 2022; Human Services. 2021. “Basic Center Program” ; The 50 Casey Parks. 2019. “New Avenues for Youth opens city’s

Interview with Sean Suib.

Night Ministry and Subsidiary. 2021. “Schedule of

first housing program for LGBTQ homeless youth,”

78 Interview with Sean Suib.

Expenditures of Federal Awards,” Document provided

The Oregonian, 9 January; Email correspondence with

79

by Betsy Carlson, 3 January 2022.

New Avenues for Youth 2020, 6–9.

Sean Suib, 18 February 2022.

80

23 The Night Ministry 2020b.

Interview with Sean Suib.

51 Interview with Sean Suib; New Avenues for Youth.

81

24 Interview with Betsy Carlson.

Ibid.

2018. “2015 – SMYRC becomes a program of New

82

25 U.S. Department of Health and Human Services. 2021.

Avenues for Youth,” Facebook post. Accessed 7

Interview with Betsy Carlson; Interview with Sean Suib.

“FYSB Runaway and Homeless Youth (RHY) Maternity

December 2021.

83 Interview with Sean Suib.

30

Additional Resources

n “Where Am I Going To Go? Intersectional Approaches To Ending LGBTQ2S Youth Homelessness in Canada & the U.S.” (2017), edited by Alex Abramovich and Jama Shelton, examines pathways into and out of homelessness through an intersectional framework and features several local approaches to youth homelessness. www.homelesshub.ca/

sites/default/files/Where_Am_I_Going_To_Go.pdf.

n “Homelessness and Housing Instability Among LGBTQ Youth” (2022), by the Trevor Project, examines the prevalence of homelessness and housing instability among LGBTQ youth and recommends strategies for addressing youth home-

lessness. thetrevorproject.org/wp-content/uploads/2022/02/Trevor-Project-Homelessness-Report.pdf.

n “Methods and Emerging Strategies to Engage People with Lived Experience: Improving Federal Research, Policy, and Practice” (2021), by the Office of the Assistant Secretary for Planning and Evaluation, U.S. Department of Health and Human Services, shares guidance and lessons learned for engaging with people about their lived experience in ways that are trauma- and survivor-informed as well as equitable. aspe.hhs.gov/sites/default/files/documents/1bb6cd68f

81e1bb74e3bf30e1085a354/lived-experience-brief.pdf.

n “Improving Stability for Youth Exiting Systems of Care” (2020), by the Washington State Department of Commerce, presents findings from codesign sessions among youth and stakeholders in child welfare, juvenile justice, and behavioral health to understand why young people exit systems into housing instability. commerce.wa.gov/wp-content/

uploads/2020/02/Youth-Exiting-Systems-of-Care.pdf.

n “Learning from The Field: Programs Serving Youth Who Are LGBTQI2-S and Experiencing Homelessness” (2011), by the Substance Abuse and Mental Health Services Administration, presents lessons from listening tours with service

providers who work with LGBTQI2-S youth. samhsa.gov/sites/default/files/programs_campaigns/homelessness_

programs_resources/learning-field-programs-serving-youth-lgbtqi2s-experiencing-homelessness.pdf.

n “The mental and physical health of homeless youth: a literature review” (2012), by Jennifer Edidin, Zoe Ganim, Scott Hunter, and Niranjan Karnik, examines the adverse effects of homelessness and contributing factors on the neurocog-

nitive development of youth. pubmed.ncbi.nlm.nih.gov/22120422/.

n “Risk Factors for Homelessness Among Lesbian, Gay, and Bisexual Youths: A Developmental Milestone Approach”

(2012), by Margaret Rosario, Eric Schrimshaw, and Joyce Hunter, discusses sexual orientation development, sexual abuse, and substance use as potential risk factors for homelessness among LGBTQ youth compared with non-LGBTQ

youth. ncbi.nlm.nih.gov/pmc/articles/PMC3279927/.

For additional resources archive, go to www.huduser.gov/portal/periodicals/em/additional_resources_2022.html.

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Document Outline

Message From PD&R Leadership

Editor’s Note

Youth Homelessness: The Sum of Our Parts

Current Findings From the Round One Evaluation of the Youth Homelessness Demonstration Program

Programs Addressing Youth Homelessness

Additional Resources

Table of Contents

Message From PD&R Leadership

Editor’s Note

Youth Homelessness: The Sum of Our Parts

Current Findings From the Round One Evaluation of the Youth Homelessness Demonstration Program

Programs Addressing Youth Homelessness

Additional Resources