HOMELESSNESS OVERVIEW

Definition

Homelessness is a complex issue that cuts across a multitude of arenas including housing, basic needs, health, workforce development, education, early education and care, and public safety. In short, a person is in a homeless situation when he or she "lacks a fixed, regular, and adequate nighttime residence" (McKinney-Vento Homeless Assistance Act of 1987, codified in U.S Code, Title 42, Chapter 119, Subchapter 1, Section 11302(a)). The U.S. Department of Housing and Urban Development (HUD) also defines "homeless person." Individuals must meet HUD's definition of "homeless" in order to receive HUD-funded services. HUD's definition is cited and discussed.

Key Findings

• An estimated 3,977 homeless single adults, families, and youth live in Austin/Travis County on any given day. The number of people in homeless situations continues to increase yearly, based on surveys of providers of homeless services.
  
• While the majority of homeless persons are still single men, families are the fastest growing population of homeless in the area. An estimated 1 out of every 5 homeless persons is a child. Unfortunately, Austin lacks enough shelter for homeless families, forcing many to live in their cars or on the streets until space becomes available.
  
• Despite strong economic growth in recent years, some of the primary causes of homelessness are poverty, low wages, and a lack of affordable housing.
  
• Increasing costs and competition for limited federal funds may result in the loss of critical services in the system of care for homeless persons. More local funding, both government and private, is needed for all types of homeless services.
  
• HUD, the largest funder of homeless services, is shifting its focus to funding of bricks-and-mortar housing and not supportive services, effectively reducing funding for those services that help homeless persons reach independence.
  
• Although progress has been made to increase the number of shelter spaces available in the community, more permanent affordable housing and more transitional housing are still needed.

Causes of Homelessness

For most people, an accumulation of various factors leads to homelessness. Individuals living independently in the community can become homeless when any part of their support network fails and then an event changes their lives dramatically. For some people, homelessness is simply the result of not earning enough money to be able to afford housing. For others, homelessness is a chronic life situation fueled by substance abuse or untreated mental illness. For many, the factor that originally causes homelessness is exacerbated over time by other factors. Some of the major factors that contribute to homelessness are:

Lack of Affordable Housing Economic Factors Domestic Violence Mental Illness Substance Abuse Sudden Change

Demographics

Approximately 3,977 people are homeless in the Austin/Travis County area on any given day. This number reflects estimated counts of homeless persons receiving homeless services and those who are turned away from services because of a lack of service capacity.

In Austin/Travis County, survivors of domestic violence make up the largest group of homeless individuals. Persons with serious mental illness, chronic substance abuse or dual diagnosis (both mental illness and substance abuse issues) make up the next largest groups.

There are several sub-populations of homeless individuals, all with their own service needs. Some of the major sub-populations include single adults, families with children, homeless youth, elderly persons, veterans, individuals recently discharged from institutional facilities, and rural homeless individuals.

Austin's Homeless Demographic Profile

• 3,977 homeless persons on any given day
  
• 43% are individuals in families
  
• 33% are single, adult male
  
• 17% are single, adult female
  
• 7% are unaccompanied youth
  

Cross-Cutting Issues & Impacts on Homelessness

Being homeless has many impacts on various aspects of life. Employment, health and education are three areas that are largely affected by homelessness.

EMPLOYMENT

Many homeless individuals have difficulty finding employment because they have no place of residence, discouraging employers from hiring. In cases where homeless persons do find jobs, they often are not paid adequately or do not receive any benefits. Many homeless persons find "non-standard" work, work that is temporary, part of a day labor program, or part-time. This type of work does not allow for stability, especially as it relates to housing. Despite these obstacles, according to a survey of 30 U.S cities, one in five homeless persons is employed (U.S Conference of Mayors, 1998), and in Texas, 41% of homeless persons reported having a job (Samuels, 1999).

HEALTH

Homeless individuals are susceptible to many of the same illnesses as housed individuals, but with no place to recover from their illnesses or to treat an injury, their health problems are prolonged and exacerbated. Unfortunately because many homeless individuals do not have access to adequate nutrition, hygiene, shelter from weather elements, or first aid, their health is very often compromised.

EDUCATION

In Austin/Travis County, there are an estimated 932 homeless children in families, representing 23% of the homeless population. Unaccompanied youth account for 7% (Austin/Travis County 2001 Annual Survey of Homeless Service Providers, March 2001) of the area's homeless population on any given day. Lack of transportation, school supplies, clothes, and hygiene items affect a homeless student's ability to attend school. Furthermore, frequent moving from place to place, barriers to enrollment, and the stigma of being homeless also influence whether a student accesses education services. Some specific activities to eliminate barriers are discussed.

Data about literacy and education levels of individuals receiving homeless services have not routinely been collected or analyzed by most local service providers. Several literacy and education resources specifically for persons experiencing homelessness are provided in the Austin/Travis County area.

Barriers

Many factors may hinder a homeless individual from exiting homelessness.

• The lack of adequate services in key components of the continuum of care is one of the primary reasons homeless persons do not successfully transition to self-sufficiency. Gaps in services are generally the result of inadequate funding.
  
• HUD has recently emphasized a priority for funding housing rather than supportive services, and no other agency has been able to meet the demand for funding for supportive services. New gaps in service may result from not providing continued funding for existing services.
  
• Increased local competition for funds has limited the funding available to agencies that serve homeless persons.
  
• HUD's definition of "homeless" prevents agencies from assisting many individuals in the early stages of their homelessness and causes many homeless families to become frustrated with the system of services.
  
• A decrease in government assistance for low-income individuals means that more people are at-risk for becoming homeless.
  
• Many people feel ambivalent toward the issue of homelessness and toward homeless people themselves. That ambivalence affects individual and collective behaviors and public policy priorities.

What Have We Done Since 1996?

In January of 1996, the Austin City Council adopted a no-camping ordinance and voted to establish an official City task force on homelessness. The Homeless Task Force became an official planning body of the Community Action Network (CAN) in 1996, and in December of that year published A Comprehensive Plan for Addressing Homelessness in Austin/Travis County. The Comprehensive Plan also served as the basis for the Homeless Task Force's 1997 Implementation Options report and the city government's Homeless Self-Sufficiency and Responsibility Initiative ("Homeless Initiative") which was developed in 1998.

This assessment chronicles progress that has been made since 1996 in the following components of homeless services: emergency shelter, transitional housing, permanent housing, and supportive and preventive services. It also describes groups that oversee the development of local homeless services.

Service Delivery System

Homeless services in Austin/Travis County are conceptualized as a continuum of care, that is, a comprehensive and coordinated housing and service delivery system. This framework helps communities plan for and provide a balance of emergency, transitional, and permanent housing and service resources to address the needs of homeless persons so they can make the critical transition from the streets to jobs and independent living. The continuum also includes services to prevent homelessness. Current services in the Austin/Travis County homelessness continuum of care are described. Gaps in services and estimated needs for services, based on findings from a 2001 survey of service providers, are also discussed.

What is Being Spent?

Within homeless services, an annual survey is conducted to determine funding sources for homeless services in the community. The City of Austin and Travis County together spend over $6.8 million to purchase social services to assist the homeless.

HOMELESS INVESTMENTS IN TRAVIS COUNTY IN 2001
By CAN partners	$ 8,672,653
By Federal Agencies	$13,000,000
By selected major local investors	$1,932,630

Note: The 2001 period represents varying fiscal calendars.

*Most agencies collect information by type of service provided, not by population served. Services for homeless are often combined with services for the total population. Thus, the information provided here does not provide the complete picture.

Recommendations

The recommendations stemming from this assessment reflect suggestions from the Continuum of Care grant application process, the development of the CAN Urgent Issues Plan for Homeless Services, and research conducted for this assessment.

Building on Existing Efforts

• Continue providing emergency shelter
  
• Continue Funding of Supportive Services
  
• Continue Funding Components of the Homeless Initiative
  
• Continue Development of Transitional Housing and Permanent Affordable Housing

New Efforts

• Provide Housing First
  
• Integrate Social Service Systems at All Levels
  
• Increase Access to Mainstream Human Service, Health, and Housing Resources
  
• Increase Homelessness Prevention Efforts

Performance Measures

Performance Measures Developed for City/County Social Services Contracts with Homeless Service Providers

Type of Indicator	Description
Quantitative	Number of emergency shelter beds in the community Number of persons who receive emergency shelter Number of persons who receive case management Number of persons who access permanent, affordable housing as a result of services provided Estimated number of homeless persons in Austin/Travis County
Qualitative