Homelessness
A. ISSUE SUMMARY
Vision Statement: "Travis County will be a community where all persons will have the opportunity to live in safe, decent and affordable housing."
Strategies for Buiding a Stronger Community: A Community Guide
There are many reasons a person becomes homeless. For most people, it is an accumulation of problems that leads to homelessness. Individuals living independently in the community become "at risk" of homelessness when any part of their support network fails. The breaking point may be loss of job, a major medical crisis, or divorce. Most homeless women have been driven from their home by domestic violence. Many homeless youth, often defined as "runaways," are actually "throwaways," forced to leave home because of sexual, physical or emotional abuse. Among homeless men, alcoholism, substance abuse, and unemployment are key contributing factors.
Of all of the many subpopulations of homeless, only those that live in shelters or transitional housing are well documented. Individuals who comprise other subgroups are not easily counted because they move frequently and often do not want to be counted. Persons at risk of becoming homeless are also difficult to document because they may not consider themselves as being "at risk" and are "hidden" in the community, often living doubled up with friends or relatives.
The key findings regarding homeless shelter, housing and service gaps are:
- Emergency shelter. In 1997, an estimated 6,000 homeless persons lived in Austin-Travis County over the course of a year. On any given day, there are approximately 3,800 homeless in the area. For these individuals there are only 421 emergency shelter beds available. There are plans to expand the capacity of emergency shelters. The Homeless, Self Sufficiency and Responsibility Initiative will add 250 beds for homeless men and approximately 30 beds for homeless families. Shelter for homeless youth and other persons with special needs, however, remain inadequate.
- Transitional housing. There is a shortage of transitional housing for homeless families. In 1995 only 1 in 10 eligible applicants successfully accessed transitional housing. The trend continued in 1996 when nearly 2,700 homeless were turned away from transitional housing because of lack of space.
- Affordable housing. The availability of safe, affordable housing impacts the entire Austin-Travis County Community. For persons with special needs, such as mental illness or substance abuse problems, the problem is especially severe. Simply put, the supply of transitional and permanent housing is virtually zero for homeless populations with special needs.
- Substance abuse and mental health treatment. The supply of substance abuse and mental health treatment services available to homeless persons is severly inadequate. Locally, providers estimate that up to 40 percent of homeless adults need substance abuse treatment. Data collected by the ACCESS program, a local program providing outreach to chronically mentally ill homeless persons, indicate that over one-third (34 percent) of homeless persons are dually diagnosed with mental illness and substance abuse addictions. For all of these individuals, there are only seven substance abuse inpatient treatment slots specifically allocated for homeless persons on any given day.
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B. BACKGROUND AND INFLUENCING FACTORS
Until recently, homeless men comprised the largest percentage of the homeless population. However, locally and nationally, homeless families are the fastest growing population of homeless. Data from 1998 indicate that 41 percent of Austin-Travis Countys homeless are individual adults, 46 percent are in families, and 13 percent are youth (not in families). These homeless people include those who are employed but do not earn enough to pay for housing, unemployed people looking for work, women and children escaping domestic violence, youth runaways and throwaways (including those escaping family abuse), persons who have experienced sudden destabilizing events (e.g., major medical crisis, divorce, loss of job, etc.) and persons living on the streets and along greenbelts.
Various studies have shown that the causes of homelessness can be found in an interrelated set of socioeconomic factors. These factors include lack of affordable housing, sudden loss of job or benefits, low wages/poverty, family instability (including divorce and family violence), mental illness and substance abuse. Data have been identified for two of these factors: affordable housing and poverty levels.
As was stated in the Housing Chapter, Austin has the highest rental housing costs in Texas and is the 16th most expensive apartment market in the country. Rental housing rates in the area have increased 55 percent between 1990 and 1997 and do not appear to be going down anytime soon. This is also true for home sales, where the average sales price increased 54% between 1990-97.
For people earning minimum wage, the high cost of living in Austin/Travis County presents a threat to their stability. To afford the two bedroom "Fair Market Rent" in Austin, an individual needs to earn $13.21 per hour, or almost three times the minimum wage. Recent studies indicate that 59 percent of the apartments in Austin area rent for more than the fair market rent. At the time of the 1990 census, low income households in Travis County outnumbered the rental housing units affordable to them by two to one.
Table 4.7.1 provides a comparison of poverty rates among the 10 major Primary Metropolitan Statistical Areas (PMSAs) and Metropolitan Statistical Areas (MSAs) in Texas. Austin ranked as the seventh poorest MSA in Texas. In 1996, 15.4 percent or 96,000 Travis County residents lived below the poverty level. This represents a 7.4 percent increase in the number of persons living below poverty since 1989. Among the largest MSAs, Austin has higher poverty rates than Fort Worth, Dallas and San Antonio.
Table 4.7.1
Three-Year Average Poverty Rates for Selected MSAs in Texas 1995-1997
Source: Texas Health and Human Services Commission.
U.S. Bureau of the Census, March 1998, 1997, and 1996 Current Population Survey
Poverty persists in Travis County despite the areas strong economic growth. Those being left behind in the "boom" lack the basic educational foundation or job experience to compete for the highly skilled jobs abundant in the area. Despite Travis Countys reputation as a well educated community, 16 percent of residents lack the reading, writing and computational skills considered necessary for functioning in everyday life. As of the 1990 Census, 17 percent of Travis County residents over age 25 did not have a high school diploma. Among African Americans and Hispanics, the percentage was twice as high.
Lower high school completion rates translate to fewer employment opportunities. In Travis County, African Americans have an umemployment rate that is twice as high as that for the County as a whole--7.5 percent among African American men compared to 3.2 percent for the County. Those who are employed generally work lesser skilled jobs with low pay and few opportunities for advancement. Most of the better paying jobs in the high technology field require a high school diploma and some post-secondary education and/or training. With the national trend toward fewer service related jobs, persons with limited job skills and poor education will increasingly find it difficult to find work and make ends meet.
Demographics of the Homeless Population in Travis County
It is estimated that 6,000 people are homeless in the Austin-Travis County area over the course of a year, and 3,841 on any given day. This number includes people who live in emergency or transitional shelters, in parks, open spaces, or abandoned buildings, and in weekly motels. It does not include the "hidden" homeless such as people in institutions, people doubled up with family or friends, those who are precariously housed and paying a large percentage of their income for rent or moving on a month-to-month basis, looking for cheaper housing.
Figure 4.7.1
Demographic Characteristics of the Homeless Population in Travis County on Any Given Day
Source: 1998 Austin-Travis County Continuum of Care for Homeless Assistance Grant
Figure 4.7.1 suggests that, in 1998, the largest group affected by homelessness were persons in families (46 percent), with single adults (41 percent) and unaccompanied youth (13 percent) making up the balance of the homeless. By recognizing the needs of segments within the homeless population, services can be targeted to better facilitate permanent exits from homelessness.
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C. OUTCOMES AND KEY INDICATORS
A survey of major providers of homeless services conducted in July/August 1998 estimated that 3,841 Travis County residents were homeless on any given day. This number includes people who stayed in shelters, transitional or supportive housing, as well as receiving case management and other long term services. It also includes estimates of homeless persons who are not receiving services, including families in motels, persons living on the streets and in "camps," and persons on waiting lists for shelter. This estimate may represent a duplicated count (e.g., if a person was receiving services from more than one agency, they were counted twice), but also undercounts the "hidden homeless" who live out of cars or with friends or family. The following outcomes and indicators presented in this chapter are based on this estimate:
- Increased number of emergency shelter beds
- Increased number of persons who receive food and/or meals
- Increased number of affordable housing units (transitional, supportive, permanent, affordable)
- Increased number of persons with secure, safe housing upon leaving shelter/transitional housing
- Increased number of persons receiving job placement
- Increased number of homeless persons who successfully engage in substance abuse treatment and/or mental health treatment
OUTCOME: Increased number of emergency shelter beds
Emergency shelters represent the first stage within the continuum of care of services for the homeless population and a critical entry point into services. Emergency shelters are temporary residences with an average length of stay from 7 to 30 days. All emergency shelters set certain regulations for their boarders. Drugs and alcohol are not allowed in most shelters. Half of the shelters require that residents look for employment, go to work, or go to school during the day.
According to statistics collected by the 1998 Austin/Travis County Continuum of Care for Homeless Assistance Grant proposal to HUD, there are nine emergency shelters in the City of Austin. Most of these are very small, with fewer than 20 beds. Only two shelters have more than 50 beds.
Figure 4.7.2
Current Inventory of Emergency Shelter Beds-Travis County, 1998
Source: Austin/Travis County 1998 Continuum of Care for Homeless Assistance Grant. In some cases, estimates of the distribution of beds by subpopulation were based on average occupancy.
Figure 4.7.2 shows the inadequate supply of emergency shelter beds available to single adults, families and youth. In 1996, the two primary providers of shelter for families turned away over 2,000 women and children because of lack of space. For homeless men, the Salvation Army is the primary provider of shelter. However, many men cannot use this shelter because of its rules and restrictions. The total number of beds available at any time is 421.
The City of Austin is currently implementing an initiative to improve the continuum of services for homeless persons. This initiative would expand emergency shelter for homeless persons as follows:
- Expand emergency shelter for families and victims of domestic violence by approximately 30 beds;
- Provide an expanded day resource center with social services for the homeless in the downtown area; and
- Add 250 beds for single homeless men in the Central Business District.
The impact of these services will be to help homeless persons begin the process of rebuilding their lives. Emergency shelter is often the first service used by homeless persons and is therefore a critical opportunity to direct them into other services they may need. In general, the earlier an individual connects to services, the easier it will be for them to get back on their feet.
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OUTCOME: Increased number of persons who receive food and/or meals
See similar outcome in Section 4.5. Basic Needs: Increased amount of food produced and/or distributed to persons who need it.
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OUTCOME: Increased number of affordable housing units (transitional)
Transitional housing is a temporary arrangement for homeless families who benefit by receiving housing while they secure employment, start and maintain a bank account, or pursue education or job training opportunities to achieve self-sufficiency and move into permanent affordable housing. Transitional housing is provided for a minimum of three months up to 24 months and includes case management and other supportive services, such as child care, to help homeless persons develop the resources and life skills they need to live independently.
Table 4.7.2
Number of Transitional Housing Units in Travis County-March 1998
NOTE: The breakdown of units by singles and families is an estimate based on current tenancy.
Source: 1998 Survey of Homeless Providers conducted for 1998 Austin/Travis County Continuum of Care for Homeless Assistance Grant.
Table 4.7.2 shows that the total supply of transitional housing in Travis County is 209 units. Analysis produced by the Community Action Network Homeless Task Force (1997) states that 1,000 applicants per year are denied transitional housing due to a shortage in supply. Efforts have been made to increase the amount of transitional housing: SafePlace has added 24 transitional units through a grant from the US Department of Housing and Urban Development. Community Partnership for the Homeless is adding four new units, CARITAS is leasing an additional 15 units and a City rental assistance program is adding over 50 units. This increase, however, is still not adequate to meet the demand. An estimated 1018 individuals and family members need transitional housing at any given point in time.
The majority of transitional housing (90 percent) is targeted to homeless families. This is because homeless families with children have a greater need for the safe, stable environment that transitional housing provides. In addition, it is harder for families with children to find affordable housing with two or more bedrooms than it is for single individuals to find a one bedroom apartment. Single individuals also have more flexibility regarding the size and location of their housing than families with children.
Single Room Occupancy (SRO) Units are housing arrangements that traditionally have been used to provide housing for homeless individuals without children. Austin is behind other communities with regard to the availability of SRO housing. SRO housing consists of apartments with shared baths and/or shared kitchens. The housing is modest, but affordable.
The Homeless Self Sufficiency and Responsibility Initiative proposes to expand transitional housing for homeless families by approximately 68 units. Development of SRO housing is also proposed under this initiative.
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OUTCOME: Increased number of affordable housing units ( supportive)
Supportive Housing enables individuals and families with special needs to live as independently as possible in affordable, community-based living environments. The components of this service are housing assistance (subsidies) and in-home, or community-based, support services. Support services assist residents in maintaining their housing and addressing personal goals, increasing their quality of life and creating a successful transition out of the homeless lifestyle.
Table 4.7.3
Inventory of Beds in Permanent Supportive Housing
August 1997
NOTE: The breakdown of units by singles and families is an estimate based on current tenancy.
Source: 1998 Survey of Homeless Providers conducted for 1998 Austin/Travis County Continuum of Care for Homeless Assistance Grant.
The Austin Travis County Mental Health and Mental Retardation Center (ATCMHMR) is the primary provider of mental health care to the indigent population. The Homeless Task Force estimates that, on any given day, 1,567 homeless persons need mental health services. Nearly 350 homeless persons with disabilities, including those with mental illness, HIV/AIDS and other conditions, are estimated to need supportive housing. As Table 4.7.3 indicates, the capacity of supportive housing available for the homeless population is 112 housing units. This means that the capacity to need gap is 68 percent.
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OUTCOME: Increased number of affordable housing units (permanent)
Permanent affordable housing is the ultimate goal of the continuum of care for homeless persons. It enables individuals and families to live as independently and productively as possible at home in the community. Homeless persons compete with other low-income families for affordable housing, thus making their transition to self-sufficiency more difficult.
Figure 4.7.4
Estimates of Unmet Demand (measured as a percent) for Permanent Housing Units Among Various Homeless Subgroups; Austin, 1996
Source: Austin Travis County Health and Human Services Department
Figure 4.7.4 shows how serious the permanent affordable housing shortage is among all homeless persons, and especially those with special needs. This chart compares the number of homeless persons needing permanent housing, by diagnosis, to the number of housing units specifically allocated to them. As evidenced in this chart, the majority of permanent housing for homeless persons is targeted to persons with HIV/AIDS. While it is true that homeless persons can also access permanent housing available to the entire community (e.g., public housing, Section 8, etc.), homeless persons with special needs require residential treatment and supportive housing, which is scarce.
As described in the Housing chapter, the rental market in the Austin area is one of the most expensive in Texas. Because of the high cost of housing in Austin, few families are able to find affordable housing. At the time of the 1990 Census, nearly one-third of all Travis County households were paying more than 30 percent of their income for housing. Among those least able to afford it, households earning less than half of the median family income, almost half were paying more than 50 percent of their income on housing. HUD considers these 28,000 households to have the "worst case housing needs" since their housing expenses make it difficult for them to meet other critical living expenses.
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OUTCOME: Increased number of persons with secure, safe housing upon leaving shelter/transitional housing.
There is no central source of information on the total number of homeless persons who leave a shelter or transitional housing with a safe and secure housing unit to move into. While several homeless service providers collect some data on the number of homeless persons leaving their shelters to move to such housing, data from the Salvation Army figures are the most readily available. The Salvation Army conducts an exit interview to determine if a person who leaves the shelter has found secure housing. There are some problems involved in gathering accurate information from persons leaving the shelter (e.g., people may be unwilling to give out information as to where they are going for fear that an abusive spouse or a bill collector might harass them).
Table 4.7.4
Percent of Persons Reporting Safe Housing Upon Leaving the Shelter at the Time of the Exit Interview
Source: Salvation Army, 1998
The Salvation Army generates quarterly reports on its performance in helping homeless persons transition to permanent housing. Table 4.7.4 shows the percent of homeless persons who received case management services and reported they found secure and safe housing after leaving emergency shelter.
A study conducted in 1996 analyzed 10 years of data on homelessness to determine the characteristics of homeless families most likely to find permanent housing after leaving a shelter environment. Homeless shelter residents were five times more likely to find permanent housing in 1983 than in 1992, regardless of demographic predictors. However, the ability to find housing varied by several factors. Regression analysis found that larger-sized families and minority groups were less likely to find permanent housing. Families with one child were 1.5 times more likely to find permanent housing than were families with three children, and whites were 1.9 times more likely to find permanent housing than were African Americans.
Findings from various other studies of homeless populations reveal that women, particularly female family heads, exit homelessness more rapidly and more often than males.
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OUTCOME: Increased number of persons receiving job placement
Homeless experts in Travis County report that this outcome is difficult to measure. Most homeless providers dont collect data on job placement because they dont provide this service directly, but through referral. Most job training and placement agencies do report these data but not specifically for homeless clients. The only available data collected on the number of homeless receiving job placement services is through Salvation Army, which offers job workshops. It is estimated that one out of two who attend this program are placed in a job.
This figure reflects only the rate of success of those who participate in job workshops, and does not reflect the placement level of those who find work without attending the workshops.
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OUTCOME: Increased number of homeless persons who successfully engage in substance abuse treatment and/or mental health treatment
Approximately 19 percent of the homeless have a primary diagnosis of substance abuse or dual diagnosis (substance abuse and mental illness). This does not include homeless for whom substance abuse is a secondary diagnosis. Overall, approximately 39 percent of all homeless persons have some problem with substance abuse. Table 4.7.5 also shows that the current supply of slots for substance abuse services targeted specifically to homeless is only seven slots at any point in time. These slots can serve approximately 511 persons per year, thus meeting only 34 percent of the demand.
Table 4.7.5
Demand and Supply Estimates for the Homeless Population in Need of Substance Abuse Services
